A base station communicating with user equipments using shared channels. The base station includes a congestion level estimation unit estimating a congestion level of a cell; a priority-level/desired-value changing unit changing priority levels or desired minimum transmission rates of data to be transmitted by the user equipments or the base station based on the congestion level of the cell; and a selection unit selecting one or more of the user equipments to which radio resources are to be allocated based on the changed priority levels or the changed desired minimum transmission rates of the data.