Damage isn't the only thing involved in people using the roads. Roads are a public good (in contrast to railroad tracks which are a private good).
The state effectively charges for the use of roads both to pay for maintenance and to make sure that the road remain usable to a reasonable cross-section of people. This is just as landlords charge for the use of land even when that land isn't consumed.
The state effectively charges for the use of roads both to pay for maintenance and to make sure that the road remain usable to a reasonable cross-section of people. This is just as landlords charge for the use of land even when that land isn't consumed.