A method for controlling network congestion comprising: performing, by a terminal device, a congestion control mechanism when a state of the terminal device changes, wherein the state of the terminal device is an access stratum state or a non-access stratum state; wherein after the state of the terminal device has changed, the method further comprises: stopping, by the terminal device, performing the congestion control mechanism, or suspending, by the terminal device, the congestion control mechanism; wherein the congestion control mechanism comprises first configuration information, wherein the first configuration information is at least one of the following information: probability information that the terminal device delays initiating first request information for requesting a first service, and probability information that the terminal device initiates first request information for requesting a first service within a configured delay time; the performing, by a terminal device, a congestion control mechanism, comprises: transmitting, by the terminal device, the first request information to a network device to request the first service according to the first configuration information. performing, by a terminal device, a congestion control mechanism when a state of the terminal device changes, wherein the state of the terminal device is an access stratum state or a non-access stratum state; wherein after the state of the terminal device has changed, the method further comprises: stopping, by the terminal device, performing the congestion control mechanism, or suspending, by the terminal device, the congestion control mechanism; wherein the congestion control mechanism comprises first configuration information, wherein the first configuration information is at least one of the following information: probability information that the terminal device delays initiating first request information for requesting a first service, and probability information that the terminal device initiates first request information for requesting a first service within a configured delay time; the performing, by a terminal device, a congestion control mechanism, comprises: transmitting, by the terminal device, the first request information to a network device to request the first service according to the first configuration information. stopping, by the terminal device, performing the congestion control mechanism, or suspending, by the terminal device, the congestion control mechanism; wherein the congestion control mechanism comprises first configuration information, wherein the first configuration information is at least one of the following information: probability information that the terminal device delays initiating first request information for requesting a first service, and probability information that the terminal device initiates first request information for requesting a first service within a configured delay time; the performing, by a terminal device, a congestion control mechanism, comprises: transmitting, by the terminal device, the first request information to a network device to request the first service according to the first configuration information. probability information that the terminal device delays initiating first request information for requesting a first service, and probability information that the terminal device initiates first request information for requesting a first service within a configured delay time; the performing, by a terminal device, a congestion control mechanism, comprises: transmitting, by the terminal device, the first request information to a network device to request the first service according to the first configuration information.