One example method includes obtaining, by an access network device, a waiting duration corresponding to transmitting uplink data of a first subframe quantity by a terminal, where the first subframe quantity is a subframe quantity with the greatest scheduling efficiency within a preset subframe quantity value range when the access network device schedules the terminal to transmit the uplink data. In response to determining that the waiting duration is greater than a threshold, the access network device can then determine a second subframe quantity that is within the preset subframe quantity value range and that enables the waiting duration to be less than or equal to the threshold. The access network device can then send a first uplink authorization instruction to the terminal, where the first uplink authorization instruction is used to instruct the terminal to send uplink data of the second subframe quantity.