> It's failing on the inner tunnel with an error that 
> it has no value specified for the auth type,
> but shouldn't that be set by the eap module?

It didn't say no value, it said unknown value.  The
debug output showed the value of Auth-Type as 
eap_cuesta:

Found Auth-Type = eap_cuesta
  WARNING: Unknown value specified for Auth-Type.  Cannot perform
  requested action.

The problem is that the Auth-Type (eap_cuesta)
doesn't exist in your inner-tunnel-cuesta 
authenticate section.  You are also missing 
mschap_cuesta in the authorize section.

Try this:

inner tunnel:
authorize {
        suffix
        mschap_cuesta
        eap_cuesta {
                ok = return
        }
}
authenticate {
        mschap_cuesta
        eap_cuesta
}

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