You say "numbers assigned administratively ("reference routes") that do not
appear on signs." which sounds like internal numbers which are never used by
the public in any form. So nobody will say "turn left and take the C29 for 2
kms"...
If this is the case, I would ask first if OSM is the right place to store
such numbers for internal usage. If the reply is yes, I would use a
namespace like county:ref or county_ref (following the int_ref, loc_ref,
reg_ref, etc from the wiki) because ref_admin does not say for which
administration the numbering has been defined.
If this is not the case and the refs are sometimes visible on the roads,
sometimes not, then you should use the same tag consistently as Martin said.
In my country, we add a lot of refs which are not visible, especially in
rural roads. It is maybe not interresting for the public or for "routing"
but our data can be widely used for many purpose and we don't see why we
should change the key just because the ref sign is missing.Pieren
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