Well I'll tell you a little story. I think I've shared on here before about how I met my H. He walked into the small apt gym and I had been scoping him out when I had seen him walking his dog for months beforehand. When I finally got a chance to talk to him one on one I was like HEY YOU and then we had really great conversation. At the end, I was like, "Maybe we should grab lunch or a drink sometime." And he said, "Oh yeah sounds good. I don't have my phone to get your number, but maybe I will catch you here again."
Two days later I saw him and gave him my number. He never called, but every Monday, Wednesday and Friday for weeks he kept showing up at the gym at the same time. Talking to me, flirting, acting all interested and I was so confused. Like WTH dude? Are you into me or not.
One night I was finally like, "Look. Let's go out. Right now." And we did - we went on a few dates and he was the same. He acted so into me, but kind of standoffish at the same time. One day, it all changed. I later found out that he was seeing someone and they were basically at the tail end of their relationship. He didn't want to cheat on her, but once he met me he was so interested and realized he was spinning his wheels in the other relationship.
SO IDK. The moral of this story is maybe he is into you?? Maybe there's a reason why he's not following through. I don't want you to have false hope, but really we never know what someone else's circumstances are but it seems clear that he's interested in you in some form - whether to date or be friends, I'm not sure. Hugs.
What if this were a girl at work not a guy? I work primarily with women and we're always like we should get happy hour sometime. And people will even be like oooh this place or that place is good. But its just sort of ambigiuos and no one ever follows through on making plans. I have the same thing in my group of friends. I've stopped with the vague asking. I say "hey do you want to go to happy on Thursday at x location?" I agree that he probably is in more of a friend zone with you, but I don't think his actions are all that weird. I'd venture to guess he has a personal policy of not going to lunch or happy hour with female coworkers solo. I actually know a lot of people who won't exclusively go to lunch with a member of the opposite sex because the work rumor mill can be out of control.