Ethernet-PON is an emerging access network technology that provides a low-cost method of deploying optical access lines between OLT and ONUs. It has a point-to-multipoint and multipoint-to-point architecture in downstream and upstream direction, respectively. Therefore, downstream packets are broadcast from an OLT toward all ONUs sithout collision. On the other hand, since alt ONUs share a common channel, the collision may be occurred for the upstream transmission. Therefore, earlier efforts on Ethernet-PON have been concentrated on an upstream MAC protocol to avoid collision. But it is needed to control downstream traffic in practical access network, where the network provider limits available bandwidth according to the number of users. In this paper, we propose a traffic control scheme for supporting the fairness of the downstream bandwidth. The objective of this algorithm is to guarantee the fairness of ONUs while maintaining good performance. In order to do this, we define the service probability that considers the past traffic information for downstream, the number of tokens and the relative size of negotiated bandwidth. We develop the simulation model for Ethernet-PON to evaluate the rate-limiting algorithm by using AWESIM. Some results are evaluated and analyzed in terms of defined fairness factor, delay and dropping rate under various scenario.