highway=cycleway is specifically for bikes and not for pedestrians the foot=* and bicycle=* is for "Cycle & Foot Path"'s so logically without the foot=* and bicycle=* it is solely for bikes. Also, at least here in miami dade county bikes are allowed on sidewalks unless they have specific painted or otherwise facilities (like lanes) on the road, which are highway=footway, which if those separate facilities are available they should use those. 