A controller obtains service information, and determines at least one forwarding device based on the service information. The controller generates an instruction list based on the service information and network function information of the at least one forwarding device, where the network function information is used to indicate a network function of the at least one forwarding device, and the instruction list includes a control instruction generated by the controller for the at least one forwarding device. The controller sends the corresponding control instruction in the instruction list to the at least one forwarding device, where the control instruction is used to instruct the at least one forwarding device to perform corresponding processing on a service packet of a service corresponding to the service information.