Seems like an efficient use of the subsidies then. If SpaceX was trying to provide the service already they will use a larger percentage of the funds on faster/better implementation. A company that wasn’t previously planning to provide the service would have to invest a large portion of the funds in R&D, hiring new staff, conceptual design and testing, etc.
It’s more efficient to buy a pizza from Dominos than it is to have McDonalds develop a McPizza.