This is an inexpensive way to convert 3-rail wheel sets of freight & passenger cars to 2-rail wheel sets. It is a clever technique I learned from my OO-Gauge Scalecraft trains. Lionel also may have done this to make 2-rail OO-Gauge trains.
Scalecraft cut a short segment out each axle (1/16" to 1/8") and reassembled the axles with a rigid plastic sleeve extending from wheel to wheel. Lionel also may have done this to make 2-rail OO-Gauge trains.