In the present invention, a service network includes, when user terminals are divided by area, subscriber
accommodation nodes that accommodate the user terminals present in the respective areas and
relay nodes that perform
relay of information among the subscriber
accommodation nodes. The congestion
control system further includes an edge
router that routes a
processing request for a communication service received from each of the user terminals to each of the subscriber
accommodation nodes on the service network side as a control message and a congestion control
server that controls congestion states of the subscriber accommodation nodes and the
relay nodes. The subscriber accommodation node detects, when congestion occurs or it is likely that congestion occurs in the subscriber accommodation node because of a large number of control messages from the edge
router, the occurrence of the congestion or the likelihood of occurrence of congestion and notifies the congestion control
server to that effect. The congestion control
server transmits a congestion control message for regulation to the edge
router that routes the control message to the subscriber accommodation node, in which the congestion or the likelihood of occurrence of congestion has occurred, to thereby regulate an operation for routing the control message to the subscriber accommodation node, in which the congestion or the likelihood of occurrence of congestion has occurred, from the edge router.