No, that's how they were returned to the distributer for the refund.
The top part of the comic's cover (the title) was returned to the distributor for a refund, the rest of the comic was supposed to be destroyed (by the retailer) - but many, many made their way to the, ummm, secondary market.
It is obviously cheaper to ship part of the cover than the whole comic - and it also means the distributor doesn't have to worry about disposing of thousands of comics - just the bit of the cover that was returned to claim a credit.
DUFF ON!! They still do it with the dailies here...