On a recent family driving trip along a highway, we came upon a traffic slowdown due to several miles of construction. With one lane blocked off by cones, traffic slowed as two lanes merged into one. As we continued through the construction zone, we noticed that the work on the blocked-off lane was actually complete-new cement was in place, lines were painted, and signs were up. The work was done, but no one removed the cones to let the drivers use it.
While there may be multiple customers on a road construction project, the ultimate customers are the drivers on the road. And I can tell you that those customers of that particular project weren't happy that day.