I think you find that because Harley's come from the factory like that, that it is actually legal for them to be that loud. There is not the same emissions/noise filters on a bike, because you don't have the room to put it all ... There is no cat on a Harley, and any baffle on the bike exhaust to keep the noise down is in the pipe... Some people drill out the baffle in the exhaust to make it louder, and to the untrained eye, you would never be able to tell.. This is why the cops can't/wont do anything about them....
I am a bike rider (Jap sports bike) and I do hate the loudness of a Harley. I have a Yoshimura exhaust on my bike, and it is a little louder then the standard pipe. Motorcycles also have a butterfly clip in them, which stays shut under 3,000 rpm. This is to keep down emissions, and noise... But after 3,000 they open up ... By coincidence, the emissions & noise tests are performed below 3,000 rpm, so a stock bike will also pass ... (I know this is the case for my 2003/2004 Suzuki GSX-R1000)
From a safety point of view, I would like to make my bike louder, because there is not a day goes by that I am almost wiped off the road because a car driver is not paying attention to what they are doing... A little more noise would at least give them more of a chance to hear me ...