A method, an apparatus, and a system control services, where the method includes: receiving, by a PCRF, congestion state information on a cell, resource-related information on the cell, and subscriber-related information on a UE in an activated state in the cell that are sent by an access network device; generating, by the PCRF, a QoS policy and/or a charging policy for the UE in the activated state in the cell according to the congestion state information on the cell, the resource-related information on the cell, and the subscriber-related information on the UE in the activated state in the cell; sending, by the PCRF, the generated QoS policy and/or charging policy to a PCEF, so as to enable the PCEF to execute the QoS policy and/or the charging policy.