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A downlink radio resource allocation scheme based on ICI coordination for multi-cell OFDMA system is proposed. By dynamically determining frequency reuse factor, data rate of the users who have bad channel quality is increased. In order to reduce the packet delay of the users with high average packet arrival rate, the average packet arrival rate is used as a factor of the utility function in scheduling algorithm. Simulation results show that the proposed scheme yields better performance for data services in fast fading channel.