Embodiments of this application provide a network congestion control method, a device, and a system, to dynamically control camping or handover of a user based on a user type, a service type, and a user location, thereby controlling congestion. A network device dynamically configures a grouped RFSP of a user based on information such as access network user plane congestion information without a need to modify subscription information of UE, selects, based on a user type and a service type, different networks/frequency bands/cells to control camping or handover, and instructs, by identifying a cell location, the user to select a frequency, to control congestion or the like.