We study the congestion on a homogeneous roadway with open boundaries. Three different phases are identified. Both numerical and analytical results are presented. For stationary boundaries, three different flow can be associated with a single density on the fundamental diagram. When the congestion is characterized by numerous jams, the system is homogeneous and the traffic flow is low. When the system is dominate by a single jam, the time trajectory traces out finite cycles and a higher traffic flow can be supported. If the cycles fill up a two-dimensional area, the traffic flow remains constant as the density changes; if the cycles collapse into a one-dimensional loop, a much higher traffic flow can be achieved. We also discuss the effects of dynamical boundaries.