In order to ensure that traffic capacity is stable, and avoid incident congestion is anabatic, a double-layer ramp-metering model is proposed in this paper to control the traffic flow at each on-ramp, nearby incident congestion. The function of the lower model is to recognize where the incident congestion exists, based on an adaptive neural network, whose inputs are traffic flow, velocity and density. The outputs of the lower model are the section number where the congestion occurs and the ramp number which should be controlled. If there is congestion, the upper model would be activated. The f...