A dynamic spectrum arbitrage (DSA) system includes a dynamic spectrum policy controller (DPC) and a dynamic spectrum controller (DSC) that together dynamically manage the allocation and use of resources (e.g., spectrum resources) across different networks. The DSC component may include wired or wireless connections to eNodeBs, a policy and charging rules function (PCRF) component/server, and various other network components. The PCRF may be configured to receive eNodeB congestion state information from the eNodeB, information identifying wireless devices attached to the eNodeB, categorize each of the identified wireless devices into a category selected from a plurality of categories, select a subset of the identified wireless devices based on the category into which they are categorized, and perform congestion response operations on the selected wireless devices so as to reduce the congestion of the eNodeB.