Intersection is one of the most complex and accident-prone urban scenarios for autonomous driving wherein making safe and computationally efficient decisions is non-trivial. Current research mainly focuses on the simplified traffic conditions while ignoring the existence of mixed traffic flows, i.e., vehicles, cyclists and pedestrians. For urban roads, different participants leads to a quite dynamic and complex interaction, posing great difficulty to learn an intelligent policy. This paper develops the dynamic permutation state representation in the framework of integrated decision and control (IDC) to handle signalized intersections with mixed traffic flows. Specially, this representation introduces an encoding function and summation operator to construct driving states from environmental observation, capable of dealing with different types and variant number of traffic participants. A constrained optimal control problem is built wherein the objective involves tracking performance and the constraints for different participants and signal lights are designed respectively to assure safety. We solve this problem by offline optimizing encoding function, value function and policy function, wherein the reasonable state representation will be given by the encoding function and then served as the input of policy and value function. An off-policy training is designed to reuse observations from driving environment and backpropagation through time is utilized to update the policy function and encoding function jointly. Verification result shows that the dynamic permutation state representation can enhance the driving performance of IDC, including comfort, decision compliance and safety with a large margin. The trained driving policy can realize efficient and smooth passing in the complex intersection, guaranteeing driving intelligence and safety simultaneously.