A method for virtual carrier aggregation, a base station, and a user equipment are provided. A base station receives measurement capability indication information and indication information indicating a capability of receiving data transmission that are reported by a UE. The base station selects a measurement set for the UE according to the measurement capability indication information, and sends the measurement set to the UE, where the indication information indicating the capability of receiving data transmission includes information of carriers on which the UE supports concurrent receiving of data transmission and the measurement capability indication information includes indication information indicating a capability of the UE for measuring CSI and/or indication information indicating a capability of the UE for measuring RSRP. The base station can flexibly select an activated carrier set for the UE.