In a mobile communications network, cell-clusters are defined to include a multiplicity of cells. Wireless connections within the network are classified based on the actions taken for the connections when a radio congestion state is encountered. A cell-cluster controller controls admission of new calls to the cell-cluster, and admits or rejects the calls based on (1) number of existing calls of each class in the cell-cluster, (2) traffic characteristics including call holding time and a hand-off rate of each class, (3) quality-of-service (QOS) requirements of each class, and (4) policy for scheduling or sharing different call classes at each base station of the cell-cluster.