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A self-organizing load balancing framework is proposed in this paper. It provides self-optimizing load balancing policies to improve adaptation and robustness of Fixed Relay Station (FRS) based cellular networks. The framework proposes a Self-organizing Cooperative Partner Cluster (SCPC) concept to dynamically select optimal partners of each BS and RS. A novel Comprehensive Load Balancing Policy Stack (CLBPS) is also proposed to utilize merits of various load balancing policies. Load balancing performance, signaling costs and user experience are taken into account in both SCPC and CLBPS. Simulation results show that the call blocking rate is reduced and the network throughput of FRS networks is improved.