A method includes: obtaining, by a PCRF, actual rates of service flows processed by multiple user equipment; determining, by the PCRF, a congestion relief policy according to the obtained actual rates of the service flows processed by the multiple user equipment; and sending, by the PCRF, the congestion relief policy to a service flow pass-through node, so that the service flow pass-through node executes the congestion relief policy. It is determined, according to obtained actual rates of service flows processed by different user equipment, that an actual rate of a service flow processed by a user equipment is limited, so as to increase an actual rate of a service flow processed by another user equipment. This effectively relieves system congestion and improves user experience during congestion.