Here we have a catch-22. If she moves out into the lane a safe distance, the traffic has to merge into a single lane to pass. If she keeps to the right edge, more brazen drivers can slip by without merging but would be passing her dangerously close.
This is one of those gray areas. If the road is the only viable connector and the shoulder is unrideable, and she's using it for a minimum distance, she has no choice, and I'm on her side. OTOH - if there other good choices (which folks say there aren't), and/or the shoulder is reasonably rideable then she has choices, and loses my sympathy and support.
One thing hat no one is bringing up is WHY is she the only one getting cited, and facing an injunction? (if that's the case). A local posted here that many riders use this road, and somehow manage not to raise the ire of police and traffic.