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Base station cooperation in the downlink of cellular systems has been recently suggested as a promising concept towards a better exploitation of the communication system's physical resources. It may offer a high gain in capacity through interference mitigation. This however, comes at a cost of high information exchange between cooperating entities and a high computational burden. Clustering of base stations into subgroups is an alternative to guarantee such cooperation benefits in a lower scale. The optimal definition of clusters, however, and a systematic way to find a solution to such problem is not yet available. In this work, we highlight the combinatorial nature of the problem, exploit this to describe the system of users and base stations as a graph and formulate a pure 0-1 program. Its solution suggests a cost optimal way to form clusters and assign user subsets to them.