This is a historical weirdness. I think we should consider cleaning up -- ceph is special cased as a config drive store compared to other backends. IIRC this happened because back then we expected the config drives to mostly be on shared storage, but then ceph turned up and broke that assumption.
The place I think this is especially weird right now is that if your instance has all its disks on cinder, and you add a config drive, then suddenly live migration might need to do a streamed block migration just for the config drive, which doesn't seem great.
The obvious alternative is to have config drives in cinder. How would people feel about config drives being very small cinder volumes instead of a special case? Is there a better thing we could be doing here?
If we could agree on a scope for what we think we should do here I'd be willing to consider if I have the time to take a swing at it.