There are always extra people standing around road construction sites, but there were specific extra workers at a site near my house. The person holding the stop sign to manage the traffic flow through the one open lane had another person standing next to them. This was true on both ends of the closed lane. I drove by several times and the two people never switched roles. The sign holder was always holding the sign and directing traffic. The other person was always standing there not holding the sign. Supervising.