Earlier quoted context omitted.
This is one of those things which would work beautifully if: -Everyone's creep speed was the same. -No one figured it would be more beneficial for them slip into that gap.
The whole idea is to let people slip in the gap. It's the very lack of gaps that causes the whole jam in the first place.
In my region of the world if someone creeps and leaves a wide gap between them and the next vehicle, eventually someone is bound to change lanes to occupy that space out of the perception that it somehow will help them get ahead in traffic.