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This investigation revealed how a small Indiana city illegally spent millions of taxpayer dollars on a sweet deal for those who received it - free or drastically reduced price concrete construction projects for homeowners and businesses. The "off-right-of-way" concrete program continued for years, despite state regulators telling city officials to stop. We found haphazard and incomplete billing- some people paid more than others for the same work. And because so many people did not pay at all, the program kept building up a deficit.