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as an infrastructure contractor whos done several pipelines down roads, i can tell you most times, they try to get them out of the way as much as possible. Off to the sides, middle of the lane, etc. so they arent constantly getting ran over.
However, especially in long established cities, its just not always feasible due to other utilities in the area. Most manholes are at least 48" diameter, if not bigger, so you have to place them where they'll fit.
as for them sitting lower than the road, thatll happen over time as the area gets paved and repaved. and a lot of engineers/city planners would rather them low than high. asphalt eventually compacts and you dont want a lip of a manhole sitting above the pavement.
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