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Highway is an important means of transportation to support community and economic activities. However, the highway also raises several problems, including traffic congestion. Traffic congestion can lead to losses material or non-material. Some efforts have been made by the City Government to overcome this problem. However, traffic congestion problems still occur, especially congestion that is non-recurrent. This type of congestion is dynamic and unpredictable. The risk management approach is an alternative that can be used to solve this problem, find out the dominant causes, and planning the right response. There are some earlier research, but have not found that describe patterns of interaction between risk factors and stakeholders involved in an effort to overcome this problem comprehensively. Traffic congestion is a complex problem. Therefore, Social Network Analysis (SNA) became one of the powerful methodologies used to describe and understand patterns of relations in complex problems. This research is intended to model risk factors causes traffic congestion, and stakeholders involved. Data analysis was taken base on respondents perceptions of several relevant stakeholders. The results of this study are expected to be a reference for stakeholders to understand and find the best response to overcome traffic congestion problems.