Guess what? It’s not government!
Governments are not needed to build or maintain roads. Government actually does a piss poor job of it (and of many other things), despite being paid through taxation to fulfil this function.
Despite having to pay taxes and not getting the promised service of repairing roads in return, these people still managed to come up with enough money to leave government by the wayside and do the damn job themselves.
Now imagine that they got to keep most if not all of the money they are now paying through taxes. Who would build the roads? People would, simply in the form of private companies who like to make money and know they have to provide a service or product for it.
How would these private companies know which roads to build or repair? The same way that people in the above example know now. They see the problem, are fed up with it, and take action themselves, because it is in their interest to do so. In the hypothetical situation of ‘no government’ the action would likely not be to do the work themselves, but to simply collect the money and hire the services of a private company.
It doesn’t take a whole lot of creativity or imagination to see how little government is needed for this sort of thing. With the above example, no imagination is needed at all because it is actually happening despite the existence of the government.
H/T Karen Coster at LewRockwell.com