I'm actually the author of the highway=busway proposal. I don't actually work
with the database, so I don't know how disruptive creating a new highway=* tag
would be. Having a separate highway=busway tag just seemed obvious to me. I
would not hierarchically place busways under highway=service due to their role
in carry large amounts of people to any number of destinations.
However so, these idiosyncrasies will not bother me so long so the tagging
schema allows for differentiation between long roadways in which buses may
travel on carrying passengers, and short short service roads buses may travel
on to enter a garage. The reason why this matters to me is because without this
differentiation, the OSM-Carto devs are unwilling to add rendering for busways
(that's different than service roads):
https://github.com/gravitystorm/openstreetmap-carto/issues/4226#issuecomment-712528676
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