Perhaps the tiny subsidies (in absolute terms) are because the bus systems are just so small?
SFMTA's farebox recovery is around 25%. London Underground is about 130%. Osaka Subway is 209%.
Busses are light compared to 18 wheelers and other heavy equipment, they also replace many cars and SUV’s which keep getting heavier.
Finally that rule of thumb isn’t really that accurate, “A 1988 report by the Australian Road Research Board stated that the rule is a good approximation for rutting damage, but an exponent of 2 (rather than 4) is more appropriate to estimate fatigue cracking.” Rutting really isn’t that significant in most cases, but can instantly destroy road surfaces when fully loaded construction vehicles etc drive over something once.
They don’t replace nearly enough cars and SUV’s to make up for the difference in fourth power of axle weight. But yes, 18 wheelers are worse.