American Indians used to annually burn New England forests to clear out the understory (which didn't kill the big trees because they didn't let enough fuel pile up to burn the canopy) in order to create a hunting ground and navigable forests

This is why Paul Revere was able to ride at full gallop to warn that the redcoats were coming but Thoreau visiting Walden Pond described an impenetrable tangle of brush in the same area of New England

In short, nobody because most places don't actually need roads

But for a more detailed answer: probably in cities and towns local merchants, on private homesteads the landowner, and between cities and towns probably we'll have mostly rail and water transport, with some private developers creating toll roads where that's more convenient

Roads are already there for the most part.