A communications method, device, and system for solving the connection and communications efficiency problem due to the presence of a large number of cells. The method comprises: a first local controller determines that a user equipment needs to establish a data bearer; data bearer configuration information for transmitting user data is generated; the data bearer configuration information is transmitted to a first local gateway and/or at least a first small base station, so that the network element entity that has received the data bearer configuration information establishes a data transmission channel according to the data bearer configuration information, the user equipment belonging to the first local controller and the first local gateway, the first small base station providing services to the user equipment.