It won't - if the idea is to keep it confined to specific overland routes, it is economically absurd vs. trains.
But that's not the idea. It is the camel's nose under the tent.
The goal is to get them on the road somewhere, and then gradually expand use as they can re-legislate at the cost of pedestrians.
There's a template for doing this - when cars were first commercialized, pedestrians had to be kicked off the roads, so they invented "jaywalkers", and launched a huge propaganda campaign to make it a thing[1].
Too much money and priming has been dumped into self-driving tech to abandon, so they'll try to create markets by pushing the squishy slow things that complain when they get smooshed out of the way.
[1] https://www.vox.com/2015/1/15/7551873/jaywalking-history