I made an example with the famous Spanish steps: http://i.imgur.com/aer5aZG.jpg
Steps are red, and footways are blue. The data consumer can connect every string of steps and footways to the one next to it (except when steps have step_count:left/right=0) It looks a bit busy, but I don't think relations would make this any easier to map. You would probably need a few dozen relations here. There are probably some minor holes in this concept, but those can be smoothed out. Janko Mihelić
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