Why is this a problem?
"To keep a smooth traffic flow, some highways also have minimum speed limits. If you drive slower than the minimum speed you can halt the traffic flow and create a dangerous condition. Even if there is no minimum speed limit, those driving too slow can be as dangerous as those who drive too fast."
https://dmv.ny.gov/about-dmv/chapter-8-defensive-driving#yre...
1. It's the fault of the driver behind, for not leaving space
2. It's impossible to leave space, because cars will move in if there is a large gap
3. Why is this a problem?