thats fair, but it could also be that it just happens to connect with the road at that angle and the striping is similar to what other driveways would be like (if not for the angle). It is kinda strange that I couldn't find information on who owns this, whether it is city, ODOT, or private. It doesn't exist on ODOT or West Linn GIS data. The "bike route" sign at the entrance of this seems to be city installed, and ODOT GIS says there is no bicycle facility on this side of the highway for this strech so it's probably not theirs. But Clackamas county survey, and the previously mentioned West Linn survey, doen't list it as a separate ROW: https://maps.clackamas.us/survey/PSImages/2S1E/24/SN2020-189-P23.tif 
So yea I am pretty confused. I know OSM doesn't care about ownership, but it'd be good to know who has the final say and who to ask.