Specifically, that the first network device retransmits the downlink data to the user equipment may include: if the first network device receives the negative acknowledgement information sent by the user equipment, sending, by the first network device to the user equipment, at least one physical downlink control channel for retransmission, where the at least one physical downlink control channel for retransmission carries second control information, and the second control information includes scheduling information of downlink data corresponding to the at least one physical downlink control channel for retransmission; and retransmitting the downlink data to the user equipment according to the scheduling information; or