Most highway work of the magnitude of an interchange is not done voluntarily by a developer, but rather is required by the state/county government as a condition to build houses or commercial areas.
So, the fact that it has not been completed yet is not uncommon. I remember when my former company wanted to build a major expansion to its facility, one condition was a major enhancement to several roadways that would have to handle the traffic. The building expansion had been completed for several years before they finally started the road enhancements.
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