UDP flows in the business gradually occupies most of the network bandwidth. How to obtain congestion control of UDP packets in network layer is very important. When network is congested, due to the lack of feedback mechanism to UDP packet itself, eventually lead to packet loss or serious consequences that seize the bandwidth of TCP datagram. In this paper, we apply the congestion control mechanism based on the transmitter buffer queue management on the network layer to balance TCP and UDP bandwidth use, and establish an efficient flow control strategy on the router ICMP network congestion error message handling, and conduct network simulation. Experimental results show that the congestion control based on the mechanism can effectively improve network bandwidth usage of different service flow unfairness.