A radio communication system has a user equipment, a first base station, a second base station, and a gateway device. The first base station is capable of executing radio resource control of the user equipment, whereas the second base station does not execute radio resource control of the user equipment. The first base station, based on a measurement report message, determines whether a user-plane path is to be established between the first base station and the second base station. In a case in which it is determined that a user-plane path is to be established, the first base station establishes a user-plane path between the first base station and the second base station. Also, the first base station controls the user equipment to establish a user-plane path between the user equipment and the second base station.