Seems it may be more complicated than a simple transmitter rebroadcasting outside programming to a leaky coax...
Found this patent. Since there would be emergency equipment needed to alert drivers that disrupt usual programming
I can see how it has a high cost of instillation. The need to have repeaters along the length of a tunnel and the end of
tunnel transmitting equipment.
https://patents.google.com/patent/US20070182585As for transmitting various programming across the AM/FM broadcast band I'd imagine that tunnel radio box is some
sort of distribution transformer for the leaky coax.
Would be interesting to find out exactly how it's setup but I can't find much more information online about it.