diff --git a/pulsar-broker/src/main/java/org/apache/pulsar/broker/loadbalance/impl/UniformMessageRate.java b/pulsar-broker/src/main/java/org/apache/pulsar/broker/loadbalance/impl/UniformMessageRate.java
new file mode 100644
index 0000000000000..82b4ad9cfeb46
--- /dev/null
+++ b/pulsar-broker/src/main/java/org/apache/pulsar/broker/loadbalance/impl/UniformMessageRate.java
@@ -0,0 +1,58 @@
+/*
+ * Licensed to the Apache Software Foundation (ASF) under one
+ * or more contributor license agreements.  See the NOTICE file
+ * distributed with this work for additional information
+ * regarding copyright ownership.  The ASF licenses this file
+ * to you under the Apache License, Version 2.0 (the
+ * "License"); you may not use this file except in compliance
+ * with the License.  You may obtain a copy of the License at
+ *
+ *   http://www.apache.org/licenses/LICENSE-2.0
+ *
+ * Unless required by applicable law or agreed to in writing,
+ * software distributed under the License is distributed on an
+ * "AS IS" BASIS, WITHOUT WARRANTIES OR CONDITIONS OF ANY
+ * KIND, either express or implied.  See the License for the
+ * specific language governing permissions and limitations
+ * under the License.
+ */
+package org.apache.pulsar.broker.loadbalance.impl;
+
+import org.apache.commons.lang3.mutable.MutableDouble;
+import org.apache.commons.lang3.mutable.MutableObject;
+import org.apache.pulsar.broker.ServiceConfiguration;
+import org.apache.pulsar.broker.loadbalance.LoadData;
+import org.apache.pulsar.broker.loadbalance.ModularLoadManagerStrategy;
+import org.apache.pulsar.policies.data.loadbalancer.BrokerData;
+import org.apache.pulsar.policies.data.loadbalancer.BundleData;
+import org.apache.pulsar.policies.data.loadbalancer.TimeAverageBrokerData;
+import java.util.Map;
+import java.util.Optional;
+import java.util.Set;
+
+public class UniformMessageRate implements ModularLoadManagerStrategy {
+    @Override
+    public Optional<String> selectBroker(Set<String> candidates, BundleData bundleToAssign, LoadData loadData, ServiceConfiguration conf) {
+        Map<String, BrokerData> brokersData = loadData.getBrokerData();
+        MutableObject<String> underloadedBroker = new MutableObject<>();
+        MutableDouble minMsgRate = new MutableDouble(Integer.MAX_VALUE);
+        MutableDouble minThroughputRate = new MutableDouble(Integer.MAX_VALUE);
+        brokersData.forEach((broker, data) -> {
+            TimeAverageBrokerData timeAverageData = data.getTimeAverageData();
+            double msgRate = timeAverageData.getShortTermMsgRateIn()
+                    + timeAverageData.getShortTermMsgRateOut();
+            double throughputRate = timeAverageData.getShortTermMsgThroughputIn()
+                    + timeAverageData.getShortTermMsgThroughputOut();
+
+            if (((conf.getLoadBalancerMsgRateDifferenceShedderThreshold() > 0) && (msgRate < minMsgRate.getValue()))
+                    || ((conf.getLoadBalancerMsgThroughputMultiplierDifferenceShedderThreshold() > 0)
+                    && (throughputRate < minThroughputRate.getValue()))) {
+                underloadedBroker.setValue(broker);
+                minMsgRate.setValue(msgRate);
+                minThroughputRate.setValue(throughputRate);
+            }
+        });
+
+        return Optional.of(underloadedBroker.getValue());
+    }
+}