The optimization of facility-based systems (FBSs) is considered. First, the congestion game is converted into a matrix form so that the matrix approach is applicable. Then. an FBS with a system performance criterion is considered. A necessary and sufficient condition is given to assure that the system is convertible into a congestion game with the given system performance criterion as its potential function by designing proper facility-cost functions. Using this technology, for a dynamic FBS. the global optimization may be reached when each agent optimizes its payoff functions. Finally, the approach is extended to those systems that are partly or nearly convertible. Note that the proposed methodology can only be applied to classical congestion games, where the user with multiple unit demands is not allowed.