A network side device, wherein a heterogeneous network in which the network side device is located comprises a macro cell and at least one micro cell in the macro cell, and the network side device comprises: an obtaining unit, configured to obtain load information of a target micro cell included in the at least one micro cell and service distribution information of at least one user equipment within a first preset range around the target micro cell in the macro cell; a determining unit, configured to determine an offloading threshold according to the load information of the target micro cell and the service distribution information, wherein the offloading threshold is corresponding to a parameter indicating a propagation environment of the target micro cell; and an offloading unit, configured to determine, according to the offloading threshold, whether a to-be-offloaded user equipment performs communication by using the macro cell or by using the target micro cell; wherein the parameter indicating the propagation environment of the target micro cell is a path loss or a channel gain; wherein when the parameter indicating the propagation environment of the target micro cell is a path loss, the maximum path loss to the micro cell is the parameter indicating the propagation environment of the target micro cell when delta _ load _ air = ∑ i ∈ U w i, pico W is smaller than δ 1 = the air interface load margin of the target micro cell and when delta _ load _ backhaul = ∑ i ∈ U r i, pico R is smaller than δ 2 = a backhaul load margin of the target micro cell, wherein w i,pico indicates a resource amount occupied and r i,pico is a rate that is obtained, in the target micro cell, by the user equipment i in the at least one user equipment to be offloaded to the target micro cell and W is a total resource amount of the target micro cell; and R is a maximum nominal rate of a backhaul link of the target micro cell; wherein when the parameter indicating the propagation environment of the target micro cell is a channel gain, the parameter indicating the propagation environment of the target micro cell is selected from g macro and g pico, wherein g macro is a channel gain between any user equipment in the user equipment to be offloaded to the target micro cell and a macro base station in the macro cell; and g pico is a channel gain between any user equipment in the user equipment to be offloaded to the target micro cell and a micro base station in a micro cell and g macro and g pico are used to obtain the rate r macro in the macro cell and the rate r micro in the micro cell. an obtaining unit, configured to obtain load information of a target micro cell included in the at least one micro cell and service distribution information of at least one user equipment within a first preset range around the target micro cell in the macro cell; a determining unit, configured to determine an offloading threshold according to the load information of the target micro cell and the service distribution information, wherein the offloading threshold is corresponding to a parameter indicating a propagation environment of the target micro cell; and an offloading unit, configured to determine, according to the offloading threshold, whether a to-be-offloaded user equipment performs communication by using the macro cell or by using the target micro cell; wherein the parameter indicating the propagation environment of the target micro cell is a path loss or a channel gain; wherein when the parameter indicating the propagation environment of the target micro cell is a path loss, the maximum path loss to the micro cell is the parameter indicating the propagation environment of the target micro cell when delta _ load _ air = ∑ i ∈ U w i, pico W is smaller than δ 1 = the air interface load margin of the target micro cell and when delta _ load _ backhaul = ∑ i ∈ U r i, pico R is smaller than δ 2 = a backhaul load margin of the target micro cell, wherein w i,pico indicates a resource amount occupied and r i,pico is a rate that is obtained, in the target micro cell, by the user equipment i in the at least one user equipment to be offloaded to the target micro cell and W is a total resource amount of the target micro cell; and R is a maximum nominal rate of a backhaul link of the target micro cell; wherein when the parameter indicating the propagation environment of the target micro cell is a channel gain, the parameter indicating the propagation environment of the target micro cell is selected from g macro and g pico, wherein g macro is a channel gain between any user equipment in the user equipment to be offloaded to the target micro cell and a macro base station in the macro cell; and g pico is a channel gain between any user equipment in the user equipment to be offloaded to the target micro cell and a micro base station in a micro cell and g macro and g pico are used to obtain the rate r macro in the macro cell and the rate r micro in the micro cell.