The level of service (LOS) concept in the Highway Capacity Manual has been used as a qualitative measure representing freeway operational conditions for over 35 years. One key element that has not been adequately addressed is how road users perceive LOS. This exploratory research examines road-user perceptions of freeway LOS by presenting study participants with a series of video clips of various traffic conditions (taken from cameras on overpasses to allow a complete view of the traffic stream) and asking them their perceptions of LOS. A random effects ordered probability model is then used to statistically link participant-recorded perceptions of LOS with measurable traffic conditions (speed, density, flow, percentage of trucks, vehicle headways) and participant characteristics. The findings suggest that the Highway Capacity Manual’s use of traffic density as a single performance measure for LOS does not accurately reflect road-user perceptions. The statistical analysis shows that a number of attributes besides traffic density determine public perceptions of LOS and that these perceptions vary depending on both traffic conditions and road-user characteristics.