Interesting, looks like NASA can authorize SpaceX to complete road upgrades given they did is already. It just gets added to their budget.The issue isn't pads and support buildings, that has been user funded. The issue is basic infrastructure.
NASA can't take money from SpaceX for construction like bridges, roads, power lines etc.
Kennedy’s roadways were also not designed to support the conveyance of larger launch vehicles such as SpaceX’s Starship. For example, the Saturn Causeway, which is approximately 4 miles long and serves as the primary access route to LCs 39A and 39B, needed to be widened for the side-by-side transport systems used for Starship. Typical design standards for many of the primary roads on the Center include 12-foot-wide lanes separated by 10- to 20-foot medians. To support Starship, the Saturn Causeway needed to be widened by approximately 8 feet, increasing its width from 26 to 34 feet. Given the high priority of this project, the Agency approved an easement agreement with SpaceX in 2024 permitting the company to assume full responsibility for funding the project and completion.27 SpaceX completed the Saturn Causeway road widening project in 2025. While this project improved capacity along a critical corridor, it represents a localized solution and does not address all of Kennedy’s potential future conveyance issues.
page 20 of the report, https://oig.nasa.gov/wp-content/upl...-launch-infrastructure.pdf?emrc=6a3b663b1c6c9
The Statutory Funding Barriers section of the above report is pretty good covering what can and cannot be paid for, why commercial vendors should pay for it and also references the Space Ready Act which should remove the issue altogether, if it ever gets passed. essentially if the Space Force can do it then why shouldn't NASA be allowed to (pending passing of the Bill).