Bizaro- I believe you are forgetting about the fact that the winter tires need to be stored during the summer, and vice versa in the winter.
If 500 cars each have 2 sets of tires; that is 2000 tires that need to go somewhere. Plus the extra cost for the mechanics to be swapping tires. I think there is also something about how police vehicles need new tires every X number of kilometres. (At least that was the case in the 80s with the RCMP.) That would mean tracking the mileage for each and every set of tire independantly from the odometer.
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