This is tricky, you're still not getting it.
A motor marked as 250w does not consume or output 250w. It consumes what the controller gives it.
As Saneagle explained, the 250w rating is merely a statement by the manufacturer that the motor will not overheat if fed that power continuously.
So a motor run at 36v and fed 10A will be 'using' 360w. If fed 15A it will 'use' 540w. Now run that motor at 48v with the same current applied and the figures would be 480w and 720w.
The motor will happily run at these wattages for some time as there is always 'headroom' built into the figures.
To re-state. Any motor labelled by the manufacture as 250w will be legal. What you feed into it is up to you and your requirements.
Speed limitation is achieved by the controller, normally via a wheel size setting. It gets rpm feedback from the motor so knows what to allow at the stated wheel size. So long as this is limited to 15.5mph, the bike will be legal.
Kt controllers are dual voltage (36,48), it is possible to run a system on either voltage with one of these. Motors are not voltage sensitive (within reason) and a motor specced as 36v but run at 48v will give approx 30% more power and torque. Speed will still be limited to 15'5mph as this is rpm derived. So the bike will still be legal.
So this controller:
Zen Cart! T09S 36V/48V500W 22A KT Sine Wave Controller with Julet Waterproof connector [T09S controller waterproof plug] - ★★★★★ T09S 36V/48V500W Torque Simulation Sine Wave Controller With Julet Waterproof connector 1--Rate Voltage: 36V/48V Compatible 2--Maximum Current:22±1A 3--Low Voltage...
www.topbikekit.com
is a dual voltage 22A sine wave controller. 22A is the maximum current only achieved in the top assist setting. At 36v this will give 792w, at 48v 1056w. It would need to be backed by a battery with a maximum output amperage of around 30A in order to avoid voltage sag and potential battery damage/life shortening.
Sine wave controllers make the motor quieter as opposed to square wave where the motors tend to growl more at low revs.