The highway you see here used to be a two-lane road and did not connect to other highways. over the years, the highway was expanded and new ramps built to connect to other roads and highways. the changes in this image illustrate how government

I believe the answer is: builds and maintains highways

The tax payment that citizens pay for the government will be used to fund several government programs. Building and maintaining infrastructures that used by the citizens is one of those program.

Highway expansion and the building of new ramps is made by the government to accommodate increasing populations that exist in a certain region.