It was clearly based on typical utility cycling speeds, in the EU at 25 kph (approximately 15 mph), and in the British EAPC regulations at 12 mph. In the interests of EU transport law harmonisation Britain later changed that to 15 mph, but introduced a safeguard of the 14 years minimum age at the same time, something the rest of Europe doesn't have.I dont know how the 25kmh was arrived at in the first place.
As Mike intimated above, that already exists. It's the bicycle based "Low Powered Moped" class. That is restricted to 15 mph as well, but permits up to 1000 watts rating, plemty for hill climbing. Subject to registration, this is an EU wide class fully accepted in Britain. Road tax is free and moped insurance requirement applies, as do other moped laws.Another angle on things would be to maintain a 25kmh limit but allow more power so that 25kmh was maintained uphill also.
I do like the idea of having a more powerful class of ebikes that perhaps require registration and insurance but allow a higher power / speed.
I wish a brave e-bike manufacturer would produce a few of these, since there are many e-bike riders who are already driver qualified by virtue of having a car driving licence prior to 1st February 2001, a moped class P licence, or a full motorcycle licence. I'm sure there is some demand.