This is a pre-production cart. These are normally used for evaluation or marketing purposes before the production carts are available.
This one was discovered at a yard sale in Idaho in 2011 by Atariboy from the Digital Press forums along with a NBA 2 All Star Challenge proto.
It is unknown whether it has been dumped and whether it is complete or not but the date on the label is four months before the release of the game, so there may be differences from the final version.