Often the sidewalks are in such terrible shape because of tree-root heave and other problems that it's worth a runner's life to travel on them...it's hard enough to walk sometimes. In addition, walking or running facing traffic is recommended for safety. Doing it in the middle of the road is probably caused either by thoughtless or the fact that it feels good to be on a road with no traffic.

When traffic is extremely light, such as before sunrise, I myself have been known to walk down the side or even the middle of the street. I do this because the sidewalks can be treacherous in the dark since they are often lifted inches by tree roots. Walking on the side of the street reduces the danger of tripping & falling, but the slope is so extreme that my body isn't balanced. Walking in the middle of the street provides a flat surface. Since the sun is not up yet and the traffic is extremely light, this does not seem to be a hazard to anyone.

When will our utility look for alternate sidewalk solutions? Concrete slab is dysfunctional.

A lot of runners run in the street because the concrete sidewalk is harder and therefore worse for your knees, ankles, etc. And yes, facing oncoming traffic is recommended for safety. I run in the street, but not right down the middle, and I always go up onto the sidewalk if there's a bike coming.