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A radio resource allocation scheme for multi-cell OFDMA downlink system is proposed, where dynamic resource allocation is realized at both radio network controller (RNC) and base stations (BSs). Different from other inter-cell interference (ICI) mitigation schemes in BSs which pay little attention to system traffic load distribution, the proposed algorithm is semi-distributed. RNC coordinates ICI of cell edge users (CEUs) based on traffic load at super-frame level, whereas BSs assign channels to each user at frame-level based on Proportional-fair (PF) scheduling and allocate power on each channel based on traffic load distribution. Simulations show that the algorithm yields better performance for data services under fast fading channel condition.