As ILTB said, clueless instructions. Simply wrong.
Unless, of course, those shoulders are reserved for contra-flow peds, are ADAAG-compliant, well-maintained, etc. (I get grumpy when branches scratch my head). I guess that could work. But you'd still need better signage.
"What if we fail to stop the erosion of cities by automobiles?. . . In that case, we Americans will hardly need to ponder a mystery that has troubled men for millennia: What is the purpose of life? For us, the answer will be clear, established and for all practical purposes indisputable: The purpose of life is to produce and consume automobiles."
~Jane Jacobs, The Death and Life of Great American Cities
1997 Mongoose Hilltopper, 1988 Bianchi Specialissima, 2006 Surly Cross-Check, 2010 Norco City Glide, 1947 CCM Single-speed.
"Take him to the forge and show him the instruments"
Bernardo Gui, Inquisitor The Name of the Rose