Well, it is indeed government regulation, or rather dictat. Neither Tesla nor the mall owner would have put them in. As to why, well the pedestrian access from the top parking lot is stairs, and the probable thinking is that you don’t only want to park and charge, but you also want to access the stores in the mall, hence the need for handicap accessible pedestrian access to some of the charging spots. They probably could have satisfied the requirement by having a ramp that zig zagged down the hill, but opted for the stalls on the lower level.