I got nothing on the why, what or who but here's a better version of the photo.
Me neither. I plugged it into a few searches, and the only other thing was that it happened at Seton Park Apartments in Baltimore, MD.
Best guess is it was a capture from a surveillance video. Many commenting said she stole a large bra from a store and just decided to wear it (maybe to sell) and that both of these people are street junkies.