Risk gets passed along until someone accepts it, usually an insurance company or the operator. If the risk was accepted and paid for by Tesla, then the cost would simply be passed down to consumers. All consumers, including those that want to accept the risk themselves. In particular, if you have a fleet of cars it can be cheaper to accept the risk and only pay for mandatory insurance, because not all of your cars are going to crash at the same time, and even if they did, not all in the worst way possible. This is how insurance works, by amortizing lots of risk to make it highly improbable to make a loss in the long run.