Tararua District Council was also a shareholder at the time the company wound up.
Mr Freeman clarified that the loss to the ratepayer was the money the council would have got for the firm had it been sold.
"The reality is, from a cash point of view, they [the ratepayers] are no worse off than they were before," he said.
"It is just that that money was tied up in the investment so it was money that was already in there."
Mr Freeman explained that while the council did not go out of its way to invest in the company, Infracon, as a private entity, was borne essentially out of council's works division.
"It was a part of a council-owned entity - a council-owned works department," he said.
"Then it became a separate council-controlled organisation and then it became a separate company," said Mr Freeman.
A company the district council had a stake in.
"We actually haven't invested any money in it, it was money that was already there," said Mr Freeman.
"It was built up by a council-owned company over a three-year period, so we didn't go out and buy it, we already owned it."
Central Hawke's Bay Mayor Peter Butler reiterated the council started the company.
According to Infracon's website, the private company ceased trading in August 2014. Its assets and contracts were acquired and will be operated by the Higgins Group.