In NYS it is illegal to pass on the shoulder. When I drive to my daughter's house, there is a school on a heavily traveled road that has a lot of housing developments on it. Soule Road in Liverpool. The road is very busy at times and there are a lot of turning cars. They have multiple signs on the road in front of the school that state, it is illegal to pass on the shoulder. I have still seen people pass on the shoulder in that area. Between the speed zone of 20 and the no passing on the shoulder, I think they could fund the police department.