An approach is provided for supporting a fair access policy to exchange traffic in a radio communication system. A committed information rate (CIR) level is assigned to a terminal according to one of a plurality of throttling states that specify respective different throughput levels according to loading of the communication system. The traffic is forwarded to the terminal based on the current throttling state of the terminal, wherein the traffic throughput is limited to the CIR level of the terminal. This approach as particular applicability to shared capacity systems, such as a satellite communication system.