The policy formulating method includes: receiving, by a policy server, User-Agent user-agent information sent by a gateway, where the User-Agent information carries type information of a terminal or type information of a browser used by a terminal; determining, by the policy server, a type of the terminal according to the User-Agent information; and formulating, by the policy server, a charging policy and/or a QoS quality of service policy according to the type of the terminal. Type information of a user terminal or type information a browser used by a terminal is reported to a policy server; the policy server is capable of correctly distinguishing a terminal type, for example a mobile phone or a PC is surfing the Internet, and then the policy server formulates a corresponding policy to implement Internet access charging and QoS guarantee.