Network device selection or handover schemes enable higher network capacity based on partially-observable Markov decision processes. Unavailable cell loading information is observed and/or predicted from non-serving base stations and actions are taken to maintain an active base station set or network device candidate data for selection in routing communications of a mobile device in a mobile device cell selection or handover procedure. A reward function is considered in the selection based on various parameters comprising system capacity, handover times, and mobility of a mobile device or mobile station.