They put the curb cuts in whenever they are replacing the curb, so they don't have to do it all over again when the property finally gets built out, the road gets paved, or whatever.

I'm guessing there's a nice new sidewalk with handicap ramps across the street from the ramp pictured. When you put in a new sidewalk, you have to put in handicap ramp at the corner. But if there's no handicap ramp on the opposite corner, you have to put in one across the street, too. But apparently you don't need to build a sidewalk connected to the new handicap ramp....

Ive taken similar pictures in California and New York.