attempting, by a user equipment (UE), an initial attempt to initiate a data session over a packet data network (PDN);

receiving, by the UE, a notification of network congestion comprising a congestion metric, wherein a congestion condition is based on the congestion metric indicating a congestion severity;

receiving, by the UE, a retry parameter set;

receiving, by the UE, routing node information for a set of available routing nodes, the routing node information comprising Internet Protocol (IP) addresses of routing nodes in the set of available routing nodes;

receiving, by the UE, a prioritization order, according to which the UE selects a routing node from the set of available routing nodes for a retry;

based on at least a fast retry timer and a fast retry counter, attempting, by the UE, fast retries up to a maximum number of fast retries at a fast retry time interval; and

based on at least none of the initial attempt and the fast retries initiating the data session, attempting, by the UE, slow retries at a slow retry time interval, longer than the fast retry time interval, until the data session is initiated or a trigger condition halts the slow retries.