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Adaptive signal control (ASC) is a well-researched topic that offers an efficient way for traffic management. It possesses a powerful ability to accommodate complex and constantly changing urban transportation networks. With the development of vehicular communication, CV-based ASC shows remarkable advantages compared with the traditional ASC system. Though the existing CV-based ASC strategies were proposed in the past few years, however, there are still issues to overcome. Most of the studies on CV-based ASC are based on the assumption of high CV penetration rate, which often result in poor performance when applied to low CV penetration environments. Besides, the lack of consideration for mixed traffic flow, which is in terms of both the vehicle types and CV penetration of different types of vehicles. To solve these issues, this paper developed an Occupancy-Based ASC strategy for a congested signalized intersection to optimize signal timing and reduce total passenger delay in the low CV penetration environment. Focused on the issues existing in the low CV penetration environment, a Maximum Likelihood Estimation (MLE) model was proposed to estimate vehicle arrivals, and two traffic models, MicroDM and MacroDM, were developed to model the mixed traffic flow and estimate passenger delay. With the purpose of offering fair treatment to passengers approaching the intersection, we proposed an Occupancy-Based Adaptive Signal Control strategy. By transforming the complex signal control problem into a mixed-integer linear programming problem, we found the optimal solution for minimizing total passenger delay. We then evaluated the proposed Occupancy-Based ASC strategy using simulation case studies. The results show that changing traffic status could be captured and estimated with the real-time CV trajectory data as input. Applying the Occupancy-Based ASC control strategy, phases with HOVs or more vehicles will be allocated more travel time. In particular, optimization results show that the proposed Occupancy-Based ASC strategy effectively balances passenger travel demands during peak volume periods.