So to summarise...
To work properly all motorists have to merge in turn. It's just that the opinion on how to achieve this differs.
The signs are the problem I think, they should state clearly to use both lanes and not to merge until the end. I have encountered signs on the roads telling motorists to use both lanes when traffic volume is high, so they are almost getting there.
While ever you have random merging throughout a 3rd of a mile section of road you will always get the outside lane moving faster, as the random merging is slowing the inside lane down.
A different system of control needs to be implemented.. Zip merging works!
But what about all those car drivers that leave their fog lights on when it's not foggy, and at night, and in the rain....