Traffic associated with user equipment that are served by a first radio access network is steered to a second radio access network based on a cell user occupancy criterion. Cell user occupancy data that represents a maximum number of devices served by an access point is determined based on a type of the access point (e.g., macro access point, femto access point, WiFi access point, etc.). Further, based on the cell user occupancy data, a normalized index value is generated that is relative to different cell types/capacities. The cell user occupancy data is then transmitted to one or more neighboring access points that can utilize the cell user occupancy data to facilitate traffic steering, load balancing, and/or neighbor relationship management.