Provided are a congestion control method and device, and a base station. The congestion control method includes: determining whether a traffic data flow transmitted by a base station is congested; setting an Internet protocol (IP) data packet in the traffic data flow when the traffic data flow transmitted by the base station is congested, where the set IP data packet is used for indicating that the traffic data flow transmitted by the base station is congested. The present disclosure solves the problem in the existing art that user throughput is affected because a base station only determines whether the base station is congested.