The invention provides a double-deck satellite load balancing method based on link cost conversion. According to the method, on the basis of the virtual topology strategy of a satellite, low earth orbit (LEO) layer link cost conversion and layered flow division are conducted on a topology snapshoot. Thus, by means of predictability and periodicity of constellation running of the satellite, system running time is divided into a plurality of same time periods, each time period is divided into n gaps tp, and link overload judgment is conducted on an inter-satellite link in each time gap. Congestion grading is conducted on a global coverage area, cost regulation and route optimization are conducted in cooperation with the real-time flow of the LEO satellite link when the link is congested, and therefore flow of the whole network is balanced. On this basis, reasonable route selection is conducted on transmission service with different qualities of service (QoS) in cooperation with the MEO layer satellite network, and the throughput of the whole network is improved while the requirement for the high priority service time delay is met.