I suspect the motivation for creating ~mirror sites on ccTLDs, instead of making a single multilingual site, is a desire to geo-target the search engines that offer ccTLD specific versions of their service. So, to improve rankings in Google.Fr a business may create a .Fr version of their website, host it on a server located in France, translate the site, seek links from other .Fr domains, etc.
I suspect localization will increase for small to mid-sized businesses that don't have a strong international brand. If they are attempting to rank for generic product or service names, not brand names, they will have to take this approach if they want to draw new customers "from search".
I don't see this as an attempt to spam the ODP, though in some cases it might.