A terminal device determines a resource of a physical uplink control channel. The physical uplink control channel carries a first encoded bit sequence and a second encoded bit sequence, the first encoded bit sequence is corresponding to first uplink control information, and the second encoded bit sequence is corresponding to second uplink control information. The resource for the physical uplink control channel includes N orthogonal frequency division multiplexing (OFDM) symbol sets. The first encoded bit sequence is carried in an OFDM symbol included in j OFDM symbol sets, the j OFDM symbol sets are a part of or all of of the N OFDM symbol sets, where j is a positive integer less than or equal to N. The terminal device sends, on the resource for the physical uplink control channel, a signal that is generated based on the first uplink control information and the second uplink control information.