When the PanAm games came to Winnipeg, the cycling association and the PanAm association mapped out a Time Trial route for the participants, and then requested that the Manitoba government fix up and repave the shoulders so that they would be nice for the games.
The Manitoba government did ... with heavy, gravelly chipseal. For whatever reason, the person in charge of the fixing and repaving thought that would be the best surface for the occasion.
A pre-PanAm games Time Trial was held for all the Manitoba racers ... kind of a dress rehearsal ... and I raced that day. The event was good, but the road surface was awful. I think everyone logged their worst times.
But it was too late to do anything about it and the PanAm cyclists raced on it. So ... it's even used during significant events.