Is it normal to issue a recall for a problem that has not been reliably reproducible?
As the other commenter says, in these circles, Tesla is very well trusted. Out in the world though, there are still a lot of people who associate Teslas with spontaneous combustion. Even if that same person would say that they're "probably safe" or some similar hedged assessment.
I think in terms of safety, Tesla is more associated with things like blowing out the NHTSA rating system.
Auto companies have been preemptively recalling because recall is cheaper in the long runs than fines.
In fact rules and regulations for auto is actually a good example of government doing their job. Ralph Nader really did push real safety on cars in general.