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Optimizing non-orthogonal multiple access (NOMA) in multi-cell scenarios is much more challenging than the single-cell case because inter-cell interference must be considered. Most papers addressing NOMA consider a single cell. We take a significant step in analyzing NOMA in multi-cell scenarios. We explore the potential of NOMA networks in achieving optimal resource utilization with arbitrary topologies. Towards this goal, we investigate a broad class of problems consisting of optimizing power allocation and user pairing for any cost function that is monotonically increasing in time-frequency resource consumption. We propose an algorithm that achieves global optimality for this problem class. The basic idea is to prove that solving the joint optimization problem of power allocation, user pair selection, and time-frequency resource allocation amounts to solving a so-called iterated function without a closed form …