That's a common Unix practice to put system-wide stuff manually managed (as opposed to managed by the OS/distribution) in /usr/local.
Also, what if for some reason a single machine is shared by two people and they need different versions of some programs installed with Homebrew? Installing everything in /usr/local isn't going to look like a good idea then.
A while ago I floated the idea of having a separate, low-privilege "brew" user that installs things, with the brew command automatically switching to that user, but there was no interest.