In this paper, we propose a fuzzy traffic controller that is able to cope with traffic congestion appropriately. In order to consider such situation as loss of green time caused by spillback of upper crossroad, it imports a degree of traffic congestion of upper roads which vehicles on a crossroad are to proceed to. We constructed the equal-partitioned fuzzy traffic controller that uses the membership functions of the same size and shape, and modified the size and shape, and modified the size and shape of its membership functions by the membership function modification algorithm. In experiment, we compared and analyzed the fixed signal controller, the fuzzy traffic controller with the membership of the same size and shape, and the modified fuzzy traffic controller by using the delay time, the proportion of entered vehicles to occurred vehicles and the proportion of passed vehicles to entered vehicles. As a result of experiment, the modified fuzzy controller showed more enhanced performance than others.