According to the company's FAQ, there is more usable surface in roads than on roofs. Even if it's less power per square meter, it certainly makes a dent.
> The approximately 140,000 km of roads in the Netherlands cover a total area of about 400-500 km2, which is significantly larger than the total (suitable) roof surface area.
The FAQ: http://www.solaroad.nl/en/faq/
(Btw, I wasn't the one who downvoted you.)