A method of operating a communication system is disclosed. A first set of wireless devices is communicated with using a first frequency range. A second set of wireless devices is communicated with using a second frequency range. A first air-interface utilization associated with the first frequency range is determined. The first air-interface utilization is determined to satisfy a criteria. A second air-interface utilization associated with the second frequency range is determined. A subset of the first set of wireless devices is selected. The subset is selected to have a total air interface utilization that exceeds one-half of the difference between the first air-interface utilization and the second air-interface utilization. The subset of wireless devices is controlled to use the second frequency range.