A method includes: determining, by a terminal device, M pilots of N air interface technologies on a carrier, where each of the N air interface technologies corresponds to one of the M pilots; measuring, by the terminal device, at least one cell by using the M pilots, to generate a measurement report; and determining, by the terminal device, a target cell in the at least one cell based on the measurement report. After determining the target cell, the terminal device may access the target cell. In this way, a plurality of services that are greatly different may be transmitted by using the N air interface technologies, corresponding air interface technologies are provided based on different service requirements of the terminal device, and resources may be dynamically allocated to the plurality of air interface technologies, thereby effectively improving radio resource utilization.