The longest possible sleep time is selected while data missing is prevented in a PON system by referring to the link speeds and the queue buffer capacities of an OLT and ONUs. The OLT calculates a first sleep time candidate based on a first link speed at which the OLT communicates with an upper network and the capacity of an unused area of a first queue buffer where downstream data is held for each of the destination ONUs. Each of the ONUs calculates a second sleep time candidate based on a second link speed at which each of the ONUs communicates with a communication terminal and the capacity of an unused area of a second queue buffer where upstream data bound for the OLT is held. The smaller sleep time is determined and used to change one of the ONUs to a sleep mode.