In order to ensure stable traffic capacity and avoid incident congestion, a double-layer ramp metering model is proposed in this paper, based on coordination control theory, to predict and control the traffic flow at each on-ramp, when there is incident congestion on the expressway. The function of the lower model is to recognize where the incident congestion exists, based on an adaptive neural network with inputs of traffic flow, velocity and density. The outputs of the lower model are the number of section where the congestion occurs, the num...