The Governments, federal, state or local are the GC, the contractors are the grunts. Even private roads don't get built by contractors unless somebody hires them. Public roads don't get built without Governments. Governments build roads. And state, county and city road departments often do the maintenance and repairs themselves without hiring contractors.
As far as state and local pings for EVs to compensate for lost gas taxes, that's something the Feds should stop if they want to push the move. Add a 'tax' to the number of kilowatthours put into each EV, or maybe add something to tire prices when EVs need new tires, but don't apply that on Dino vehicles.
To me, that adds fairness to EV users. Why should someone who only drives their buzzmobile a few thousand miles a year pay the same annual ping as those who drive far more?