diff --git a/internal/congestion/pacer.go b/internal/congestion/pacer.go
new file mode 100644
index 00000000..b78ec1f2
--- /dev/null
+++ b/internal/congestion/pacer.go
@@ -0,0 +1,61 @@
+package congestion
+
+import (
+	"math"
+	"time"
+
+	"github.com/lucas-clemente/quic-go/internal/protocol"
+	"github.com/lucas-clemente/quic-go/internal/utils"
+)
+
+const maxBurstSize = 10 * maxDatagramSize
+
+// The pacer implements a token bucket pacing algorithm.
+type pacer struct {
+	budgetAtLastSent protocol.ByteCount
+	lastSentTime     time.Time
+	bandwidth        uint64 // in bytes / s
+}
+
+func newPacer(bw uint64) *pacer {
+	return &pacer{
+		bandwidth:        bw,
+		budgetAtLastSent: maxBurstSize,
+	}
+}
+
+func (p *pacer) SentPacket(sendTime time.Time, size protocol.ByteCount) {
+	budget := p.Budget(sendTime)
+	if size > budget {
+		p.budgetAtLastSent = 0
+	} else {
+		p.budgetAtLastSent = budget - size
+	}
+	p.lastSentTime = sendTime
+}
+
+func (p *pacer) SetBandwidth(bw uint64) {
+	if bw == 0 {
+		panic("zero bandwidth")
+	}
+	p.bandwidth = bw
+}
+
+func (p *pacer) Budget(now time.Time) protocol.ByteCount {
+	if p.lastSentTime.IsZero() {
+		return p.budgetAtLastSent
+	}
+	return utils.MinByteCount(
+		maxBurstSize,
+		p.budgetAtLastSent+(protocol.ByteCount(p.bandwidth)*protocol.ByteCount(now.Sub(p.lastSentTime).Nanoseconds()))/1e9,
+	)
+}
+
+// TimeUntilSend returns when the next packet should be sent.
+func (p *pacer) TimeUntilSend() time.Time {
+	if p.budgetAtLastSent >= maxDatagramSize {
+		return time.Time{}
+	}
+	// TODO: don't allow pacing faster than MinPacingDelay
+	return p.lastSentTime.Add(time.Duration(math.Ceil(float64(maxDatagramSize-p.budgetAtLastSent)*1e9/float64(p.bandwidth))) * time.Nanosecond)
+}
diff --git a/internal/congestion/pacer_test.go b/internal/congestion/pacer_test.go
new file mode 100644
index 00000000..937213f3
--- /dev/null
+++ b/internal/congestion/pacer_test.go
@@ -0,0 +1,91 @@
+package congestion
+
+import (
+	"time"
+
+	. "github.com/onsi/ginkgo"
+	. "github.com/onsi/gomega"
+)
+
+var _ = Describe("Pacer", func() {
+	var p *pacer
+
+	const packetsPerSecond = 42
+
+	BeforeEach(func() {
+		p = newPacer(packetsPerSecond * uint64(maxDatagramSize)) // bandwidth: 42 full-size packets per second
+	})
+
+	It("allows a burst at the beginning", func() {
+		t := time.Now()
+		Expect(p.TimeUntilSend()).To(BeZero())
+		Expect(p.Budget(t)).To(BeEquivalentTo(maxBurstSize))
+	})
+
+	It("reduces the budget when sending packets", func() {
+		t := time.Now()
+		budget := p.Budget(t)
+		for budget > 0 {
+			Expect(p.TimeUntilSend()).To(BeZero())
+			Expect(p.Budget(t)).To(Equal(budget))
+			p.SentPacket(t, maxDatagramSize)
+			budget -= maxDatagramSize
+		}
+		Expect(p.Budget(t)).To(BeZero())
+		Expect(p.TimeUntilSend()).ToNot(BeZero())
+	})
+
+	sendBurst := func(t time.Time) {
+		for p.Budget(t) > 0 {
+			p.SentPacket(t, maxDatagramSize)
+		}
+	}
+
+	It("paces packets after a burst", func() {
+		t := time.Now()
+		sendBurst(t)
+		// send 100 exactly paced packets
+		for i := 0; i < 100; i++ {
+			t2 := p.TimeUntilSend()
+			Expect(t2.Sub(t)).To(BeNumerically("~", time.Second/packetsPerSecond, time.Nanosecond))
+			Expect(p.Budget(t2)).To(BeEquivalentTo(maxDatagramSize))
+			p.SentPacket(t2, maxDatagramSize)
+			t = t2
+		}
+	})
+
+	It("accounts for non-full-size packets", func() {
+		t := time.Now()
+		sendBurst(t)
+		t2 := p.TimeUntilSend()
+		Expect(t2.Sub(t)).To(BeNumerically("~", time.Second/packetsPerSecond, time.Nanosecond))
+		// send a half-full packet
+		Expect(p.Budget(t2)).To(BeEquivalentTo(maxDatagramSize))
+		size := maxDatagramSize / 2
+		p.SentPacket(t2, size)
+		Expect(p.Budget(t2)).To(Equal(maxDatagramSize - size))
+		Expect(p.TimeUntilSend()).To(BeTemporally("~", t2.Add(time.Second/packetsPerSecond/2), time.Nanosecond))
+	})
+
+	It("accumulates budget, if no packets are sent", func() {
+		t := time.Now()
+		sendBurst(t)
+		t2 := p.TimeUntilSend()
+		Expect(t2).To(BeTemporally(">", t))
+		// wait for 5 times the duration
+		Expect(p.Budget(t.Add(5 * t2.Sub(t)))).To(BeEquivalentTo(5 * maxDatagramSize))
+	})
+
+	It("never allows bursts larger than the maximum burst size", func() {
+		t := time.Now()
+		sendBurst(t)
+		Expect(p.Budget(t.Add(time.Hour))).To(BeEquivalentTo(maxBurstSize))
+	})
+
+	It("changes the bandwidth", func() {
+		t := time.Now()
+		sendBurst(t)
+		p.SetBandwidth(uint64(maxDatagramSize)) // reduce the bandwidth to 1 packet per second
+		Expect(p.TimeUntilSend()).To(Equal(t.Add(time.Second)))
+	})
+})