As autonomous vehicles populate the road, they need to interact with other autonomous and human drivers. In urban environments, these vehicles will need to navigate dense traffic situations, thus creating a need for planning in congestion. Our approach creates a dynamic control law that scales with the varying traffic density. We generate a cost function for the vehicle, which incorporates the density, occupancy, and risk level within the environment. By choosing vehicles actions only below a certain cost value, we demonstrate the vehicle remains safe while avoiding the common “freezing robot” problem.