The present invention provides a congestion control method and apparatus. The method includes: sending, by a user equipment, a first network connection request to a network device of a first mobile network; receiving, by the user equipment, a first network connection rejection message from the network device, where the first network connection rejection message includes network switching indication information, where the network switching indication information is used for instructing the user equipment to switch to a second mobile network, and the network switching indication information is from a subscription manager SM; and accessing, by the user equipment, the second mobile network according to the network switching indication information. The present invention ensures normal execution of a service on an eUICC user equipment when network congestion occurs.