To repair a road you need to either overlay a road bed in reasonable condition with new or recycled bitumen and gravel mix, or mill it out to the underlayer ( or at least the 50mm wear course), repair the cracks and sags in the underlay and then put a new wear layer on it. The majority of the cost is the milling out, or the new layer if building up and redoing all the kerbing and edges.
Solar roadway you still need to do this all, then add in the cost of putting in this expensive and likely fragile ( as in the road crews will pooch a lot in putting in 1km, so you probably will start with 2km to get 1km of semi working panel out afterwards) till installed panel in. Then you need to do kerbside works to place the inverters, cabling and such to channel this new power into the local grid. then what about the typical things that happen to a road bed, what will you do when a water pipe under the road bursts, or a sewer needs work, or when you need to dig a trench to repair a clogged storm water drain. these are things a tar road handles well, you just end up with a patch of new tar somewhat matching the existing bed profile, and things carry on. Solar roadway first you need to disconnect that section of grid, then isolate the relevant road bed segment and isolate it, then safely ( remember, this is a high voltage source that you are about to shove a metal shovel, either with somebody leaning on it or driving the mechanical digger) make your initial cut, then dig your trench ( and hope that you do not have to do the typical follow the line to find the actual leak/valve/non broken pipe), do the repair, fill the ditch and recompact it, then reinstate the underlay, repair the wear course and finally either leave that section safely isolated ( because you cut a long slit in the panels, and went through 2 or more segments as well) and waterproof the cut ends, or repair it again and reconnect.
Regular roadway, you get the cones out, the danger tape, the construction signs and the flags off the truck, put out, and a half hour later you are digging. fix the problem, put the pile of sand back, run the plate compactor over each layer, redo the underlay, slap some premix on top and compact it with the plate compactor and a roller, and an hour afterwards the road is clear for use. Solar roadway, first get the company out that installed, they show up 2 days later, start to look for the mislaid plans, cut the wrong sections, repair and find the right sections, then finally a week later declare it ready for you. Then you can fix that water main, too bad for the people living in the area, who have had no water/power/gas/sewage/stormwater drainage/telephone/cable/road access for that week, plus they will have the same for a week afterwards while the company fixes the solar paneling or safes it.
Add to this solar panels are really only economical with a 25 year payback time, but a road surface will show wear after 5 years, and a 25 year old road bed is known here ( as so often happens with deferred maintenance or no maintenance) as a grass road, from the grass growing in the cracks. a retop every 10 years will keep it working, and here we do not have to deal with those annoying things like snow ( really bad for a road when you scrape it year on year with a bulldozer blade to move the ice layer, let alone corrosive salt) or anything aside from the nice 37C day that summer gives. Great for solar power generation, but not good when your panel is at 130C in the open sun with no chance for cooling, and not too good for the embedded inverter as well sitting there in the melting tar.