To ME, this screams of mismanagement of the game project, budget problems, or both.
An idea like this sounds like it comes from some senior Project Manager who realizes that the game is over budget, or does some number crunching and doesn't think that game sales are going to cover development costs. This PM then goes to his managers, and managers make the decision to either trim the game down so it can be finished on a smaller budget, cut the game entirely, or come up with some other money-saving alternative.
Project Manager goes back to the Project team with this information, and someone on the team comes up with the idea of using some kind of DLC for the game. The problem is that they don't have development to MAKE any DLC. So someone else comes up with the idea of turning existing game assets into a sort of DLC, and the idea snowballs from there. Managers love the idea, and tell them to run with it. Then you get what you have now.