To me, a graphics driver is something that drives the hardware, lets me implement new extensions and compiler features, fix bugs that effect me, etc.
opengl is too high level, especially when you take glsl into account.
The closest equivalent in a more traditional gpu architecture to what is open in rp-i would be an open EGL layer (which would let you implement support for wayland or some new window system). The r-pi does have some advantage that libc version isn't a problem, but even that isn't too big of an issue w/ something like libhybris (which would be a considerably more simple thing if it didn't have to emulate one EGL on top of another).