An access network congestion control method, comprising: sending a congestion report to a policy and charging rules function network element, PCRF, wherein the congestion report comprises information about user equipment in a congested state in at least one user equipment, information about user equipment in an over-served state in at least one user equipment, wherein the user equipment is in an over-served state if currently occupied radio frequency resources of the user equipment are more than actually needed radio frequency resources, and information about radio frequency resources occupied by the user equipment in the congested state and the user equipment in the over-served state; receiving a radio frequency resource adjustment policy sent by the PCRF; and performing the radio frequency resource adjustment policy for the user equipment in the congested state and the user equipment in the over-served state; before the sending a congestion report to the PCRF, the method further comprising: performing pre-adjustment by allocating, to the user equipment in the congested state according to the information about radio frequency resources occupied by the user equipment in the congested state and the user equipment in the over-served state and according to a specified algorithm, a part of the radio frequency resources of the user equipment in the over-served state that exceeds a corresponding limit; and correspondingly, the sending a congestion report to the PCRF comprises: sending a radio frequency resource pre-adjustment result as the congestion report to the PCRF, wherein the radio frequency resource pre-adjustment result comprises information about user equipment still in the congested state and information about user equipment still in the over-served state after pre-adjustment, and information about radio frequency resources occupied by the user equipment still in the congested state and the user equipment still in the over-served state after pre-adjustment. sending a congestion report to a policy and charging rules function network element, PCRF, wherein the congestion report comprises information about user equipment in a congested state in at least one user equipment, information about user equipment in an over-served state in at least one user equipment, wherein the user equipment is in an over-served state if currently occupied radio frequency resources of the user equipment are more than actually needed radio frequency resources, and information about radio frequency resources occupied by the user equipment in the congested state and the user equipment in the over-served state; receiving a radio frequency resource adjustment policy sent by the PCRF; and performing the radio frequency resource adjustment policy for the user equipment in the congested state and the user equipment in the over-served state; before the sending a congestion report to the PCRF, the method further comprising: performing pre-adjustment by allocating, to the user equipment in the congested state according to the information about radio frequency resources occupied by the user equipment in the congested state and the user equipment in the over-served state and according to a specified algorithm, a part of the radio frequency resources of the user equipment in the over-served state that exceeds a corresponding limit; and correspondingly, the sending a congestion report to the PCRF comprises: sending a radio frequency resource pre-adjustment result as the congestion report to the PCRF, wherein the radio frequency resource pre-adjustment result comprises information about user equipment still in the congested state and information about user equipment still in the over-served state after pre-adjustment, and information about radio frequency resources occupied by the user equipment still in the congested state and the user equipment still in the over-served state after pre-adjustment.