FWIW, telco companies in Mexico don't charge for WhatsApp data transfer. As for prices, a 30 day Telcel 4.5GB plan is 200 pesos ($10) per month. So long as you don't use up the data doing things outside of WhatsApp, like surfing the web, which will expire the plan, then you get free WhatsApp (and Instagram and most social media) transfer for the month.
So it's not the worst organic solution and it's not even obvious how to centralize a better solution. For example, how many subway drivers are there and how much govt bureaucracy would be needed to do something like give everyone a $10 stipend for WhatsApp? Even giving each driver an extra $10 pesos per month wouldn't change anything.
The radios of those are outside. The radios of subway are underground. It's not great for radios, requires infrastructure, and phones solve it in same way, by having infrastructure close to cover for reduced range.
Then you upgrade? There's nothing that precludes that the bespoke system won't die and by the looks of it the current system has already died leading to the use of Whatsapp.
it wouldn't be that expensive to make your own app that sends and receives messages over 4g.