The base station serves includes: a sending unit, configured to send a request message to a second network device, where the request message is used to enable the second network device to generate a first configuration for a bearer of a user equipment UE, and a type of the bearer is type 2 or type 3; and a generating unit, configured to generate a second configuration for the bearer when it is determined that the type of the bearer is type 2, where the sending unit is further configured to: send the first configuration and the second configuration to the UE when it is determined that the type of the bearer is type 2, and send the first configuration to the UE.