A worker dressed in hazard orange, face-down in an open street work.
A city employee inspects construction on a public road.
Not every worker inspects the work
Just because the worker is dressed in hazard orange does not imply that he or she is a city employee. Being face-down does not imply inspecting construction. Open street work could be anywhere and does not imply a public road.
A worker possibly inspects things or worker may not be inspecting something when worker is face down; the worker may or may not work for the city; the road may or may not be a public road.