In case anyone is interested, I've just plotted the curve of power and acceleration time over 20m for a 150kg total bike weight, as described in Annex D of EN15194 as an acceptable means of showing compliance with the 250W power limit.
The red line is the 250W limit and if you look at the plot you can see that an EPAC needs to take at least 7.83 seconds to cover 20m from a standing start (on level ground with little wind) in order to be shown to have no more than 250W.
Note also that if you add a power application delay, say you just slow down the controller response time to a demand for more power, then this has the effect of moving that curve (and the vertical red line) to the left. For example, if you added a 2 second delay ramp to the controller input then the continuous power output would really be about 600W, yet the test would give a result of 250W.
If you wanted to be more extreme, then making the controller acceleration ramp 3 seconds would allow you to have well over 1kw, yet it would still legally be a 250W EPAC.
Curious way to frame a set of rules, but I suppose they must have had their reasons for doing it this way.