A positioning method, comprising: sending(S101,S304), by a positioning controller to a user device, a message that carries positioning auxiliary information, wherein the positioning auxiliary information comprises an identifier of a first base station and an identifier of at least one second base station, and the message that carries the positioning auxiliary information is used to instruct the user device to measure signals transmitted by the first base station and the at least one second base station, wherein the first base station is a serving base station of the user device, the at least one second base station is a neighboring base station of the first base station, and the positioning controller is a wireless access network device; sending, by the positioning controller, a confidence request to the user device, so as to request the user device to add, when the user device reports a measurement result, a confidence of the measurement result, where the confidence is used to represent credibility of the measurement result; receiving, by the positioning controller and from the user device, a message that carries a positioning measurement result and the confidence of the measurement result, wherein the positioning measurement result comprises results of measurement performed by the user device on the signals of the first base station and the at least one second base station; obtaining(S103,S307), by the positioning controller, location information of the first base station that is identified by the identifier of the first base station and location information of the at least one second base station that is identified by the identifier of the at least one second base station; determining(S104,S308), by the positioning controller, location information of the user device according to the positioning measurement result, the location information of the first base station, and the location information of the at least one second base station. sending(S101,S304), by a positioning controller to a user device, a message that carries positioning auxiliary information, wherein the positioning auxiliary information comprises an identifier of a first base station and an identifier of at least one second base station, and the message that carries the positioning auxiliary information is used to instruct the user device to measure signals transmitted by the first base station and the at least one second base station, wherein the first base station is a serving base station of the user device, the at least one second base station is a neighboring base station of the first base station, and the positioning controller is a wireless access network device; sending, by the positioning controller, a confidence request to the user device, so as to request the user device to add, when the user device reports a measurement result, a confidence of the measurement result, where the confidence is used to represent credibility of the measurement result; receiving, by the positioning controller and from the user device, a message that carries a positioning measurement result and the confidence of the measurement result, wherein the positioning measurement result comprises results of measurement performed by the user device on the signals of the first base station and the at least one second base station; obtaining(S103,S307), by the positioning controller, location information of the first base station that is identified by the identifier of the first base station and location information of the at least one second base station that is identified by the identifier of the at least one second base station; determining(S104,S308), by the positioning controller, location information of the user device according to the positioning measurement result, the location information of the first base station, and the location information of the at least one second base station.