Yes, it's a normal operation. At off hours such as an overnight shift with low traffic, controller positions may be consolidated. One controller may be manning tower, ground, and clearance delivery. They can combine those frequencies so when they key up, it transmits out to all three freqs, as they're monitoring all three as well. At least that's how I understand it.
Edit: while this other thread is specific to Center frequencies, it pertains:
http://www.liveatc.net/forums/pilotcontroller-forum/us-centers-non-combined-freq/