Many measures have been proposed to represent the status of traffic conditions on arterial roadways in urban areas. The debate about what is the most appropriate measure continues. In a contribution to the debate, another approach was offered. Traditionally, two general approaches exist. One is based on the relationship between supply and demand. The other is a measure relative to the most acceptable status of service quality. The latter measure allows the public to relate to their travel experience. In either case, however, derivation of measures of congestion involves uncertainty because of imprecision of the measurement, the traveler's perception of acceptability, variation in sample data, and the analyst's uncertainty about causal relations. A measure is proposed that is a composite of two traditional measures, travel speed and delay. In recognition of the uncertainty, a fuzzy inference process was proposed. The inputs are travel speed, free-flow speed, and the proportion of very low speed in the total travel time. These values were processed through fuzzy-rule-based inference. The outcome was a single congestion index value between 0 and 1, where 0 is the best condition and 1 is the worst condition. The process was demonstrated using real-world data. The results were compared with those of the Highway Capacity Manual. Although no conclusion can be drawn about the best measure of congestion, the proposed inference process allows the mechanism to combine different measures and also to incorporate the uncertainty in the individual measures so that the composite picture of congestion can be reproduced.