With reference to the first possible implementation manner of the sixth aspect, in a fourth possible implementation manner of the sixth aspect, the radio network controller further includes a second receiving module configured to, before the sending module sends the active set update signaling to the UE, receive a third measurement report sent by the UE, where the third measurement report is sent by the UE to the RNC when the UE is in a non-soft handover area and when the UE measures that the common pilot channel quality of the macro base station is greater than the preset third threshold value and less than the second condition threshold value for addition to the second active set; or the third measurement report is sent by the UE to the RNC when the UE is in a soft handover area corresponding to the second active set and when the UE measures that the common pilot channel quality of the macro base station is less than a fourth condition threshold value for removal of the macro base station from the second active set and greater than a preset fourth threshold value.