Embodiments of this application provide a method for transmitting a random access response, a network device, and a terminal device. The method includes: determining, by an access network device, a Medium Access Control (MAC) protocol data unit (PDU), where the MAC PDU includes at least two MAC subPDUs, the at least two MAC subPDUs include at least a first MAC subPDU, the first MAC subPDU includes a first MAC subheader and a random access response (RAR) corresponding to the first MAC subheader, and the first MAC subheader is located before the RAR corresponding to the first MAC subheader; and sending, by the access network device, the MAC PDU.