Guy's Behavior

Waiter constantly winked at me, but never approached me?

So I'm a bit of an oblivious person and hardly notice when guys look at me, but I was out for a drink and this waiter (mid 20s) winked at me everytime he walked past - it was totally weird, and as soon as I noticed I just smiled nervously each time. -he probably winked at me more than 5 times each time he walked past and I didn't get why he didn't just just approach me and say something instead of constantly winking? what is a girl supposed to do in that sort of situation? I just decided to see if he would say anything if I just went up to the counter to pay, I felt kind of brave for doing this instead of waiting to get the bill (and I'm usually terrified of approaching guys in general) but he just grinned and winked at me again after I paid... and that's it, he didn't say a word. Was he too shy? I'm bad at reading men xD I'd appreciate a little advice and insight from you guys, thanks!
Waiter constantly winked at me, but never approached me?
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