Drupal 7 automatically invokes maintenance mode for individual requests during certain site install and update operations, and whenever a fatal error (such as an unreachable database) has occured before bootstrap has completed.
CSS and JS aggregation will no longer be used for any pages served using this automatic maintenance mode. Previously, this had only been the case during site update operations.
This change is necessary to fix a problem where a site with CSS and/or JS aggregation enabled in settings.php would attempt to re-aggregate the CSS and JS files every request during a database outage or any other circumstance where variable_set() was nonfunctional.
This behavioral change only affects install.php and pages served in maintenance mode due to a fatal error condition. Pages served by the maintenance theme during "normal" site maintenance will continue to honor the CSS and JS aggregation settings.