Travelers' Information Systems (TIS, aka "
Highway Advisory Radio") stations are licensed by the FCC, but under Part 74 instead of Part 73; the latter being the rule subset that deals with most "full power" AM & FM. FM translators and boosters are also under Part 74, FWIW. Anyways, TIS stations are much easier to engineer into a particular location because the rules are drastically simplified. However, ownership and programming on them are SEVERELY restricted. Basically only government entities (or quasi-gov't, like state/nat'l park services) can apply, and they must have a non-commercial service limited to traffic information, tourist info, stuff like that. A handful of TIS systems are set up to sound more like normal radio stations, even though if you listen closely you'll notice that the content is still very specific. But usually they're very barebones; often you can tell it's an audio recording of a phone call that's on a loop...usually 3 to 5 minutes; any longer and you'll be outside the TIS station's limited broadcast range. TIS stations used to be limited to 530 and 1610 AM, but later were allowed in the Expanded Band (1610-1700 AM) and now you can do them on any available frequency. LPFM's can also be used as TIS stations and there's slightly preferential rules to gov't agencies seeking to do so; plus the "one LPFM per applicant" rule is waived in such cases. It's still pretty rare, though...I think the only LPFM's operating as TIS stations in New England are a handful in Vermont.
FWIW, how useful the content varies WIDELY from place to place. Many are poorly-used; broadcasting a near-useless loop of info...sometimes very out of date. Some are really good, though. I remember hearing the City of Chicago had a hefty network of TIS stations that they made extensive use of back in the 1990's for traffic control and guidance. Not sure if that's still true in the age of smartphones, though.
Also FWIW, if you see a sign on the side of the highway that says "Traffic Info tune to X frequency", nine times out of ten you'll spot a small-ish silver box (about a foot cubed) with a whip antenna mounted right on the sign in question. That's the transmitter.
They don't show up on Radio-Locator but there is a way to search for them on the FCC's website:
http://www.fcc.gov/mb/audio/bickel/tis.html
There's quite a few in Massachusetts, but I believe you were listening to WQKR351.