That's the lifecycle of a road.

First there's nothing; then the government cuts that nothing with a road; then people open business to serve the road; then the business attract more people and a city is born along the road; then the city grows and the road is a huge, lethal obstacle right on the middle of everybody's path; then the government finds a new piece of nothing and moves the road there; then all the business along the older road die, and the city needs to travel into and out of the center every day.

Honestly, I'm not sure anybody can do anything about it.