I think "service" is more appropriate than highway=secondary. Highway=service has in my opinion a wider scope than secondary. In a way, secondary is a special type of highway=service (that's the way I look at it, though other mappers probably don't look at it that way). So if a road can not be classified in other ways, use highway=service. If you have a better, more narrow scope tag, like highway=busway, use that.
Janko
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