I think the best way to approach this is from the experimenter's goal- to see if Weber's law holds true or not. From this graph, you can see that for a given intensity, the needed change in intensity in order for the subject to feel the difference in stimuli. Weber's law says that there is a fixed ratio b/w the change in the intensity of the stimuli compared to the original intensity in order for a noticeable difference to occur. However, from this graph, while we do see the change in intensity, we aren't able to see the baseline activity or the response to the normal stimulus. So, from the graph, it becomes hard to actually make a comparison between a just noticeable difference and what the normal intensity of the stimulus causes, which is an aspect of Weber's law. Seems more of an experimental design type of question to me, as I do agree that it is a bit confusing, since we know that Weber's law tells us that a graph of delta I / I would produce a linear relationship (which we do see here).