diff --git a/pulsar-broker/src/main/java/org/apache/pulsar/broker/service/AbstractTopic.java b/pulsar-broker/src/main/java/org/apache/pulsar/broker/service/AbstractTopic.java
index d437cb5929c7f..9efef66fc3d74 100644
--- a/pulsar-broker/src/main/java/org/apache/pulsar/broker/service/AbstractTopic.java
+++ b/pulsar-broker/src/main/java/org/apache/pulsar/broker/service/AbstractTopic.java
@@ -259,6 +259,10 @@ protected void updateTopicPolicyByNamespacePolicy(Policies namespacePolicies) {
         if (log.isDebugEnabled()) {
             log.debug("[{}]updateTopicPolicyByNamespacePolicy,data={}", topic, namespacePolicies);
         }
+        if (!isSystemTopic()) {
+            updateNamespacePublishRate(namespacePolicies, brokerService.getPulsar().getConfig().getClusterName());
+            updateNamespaceDispatchRate(namespacePolicies, brokerService.getPulsar().getConfig().getClusterName());
+        }
         topicPolicies.getRetentionPolicies().updateNamespaceValue(namespacePolicies.retention_policies);
         topicPolicies.getCompactionThreshold().updateNamespaceValue(namespacePolicies.compaction_threshold);
         topicPolicies.getReplicationClusters().updateNamespaceValue(
@@ -281,7 +285,6 @@ protected void updateTopicPolicyByNamespacePolicy(Policies namespacePolicies) {
         topicPolicies.getDeduplicationEnabled().updateNamespaceValue(namespacePolicies.deduplicationEnabled);
         topicPolicies.getDeduplicationSnapshotIntervalSeconds().updateNamespaceValue(
                 namespacePolicies.deduplicationSnapshotIntervalSeconds);
-        updateNamespacePublishRate(namespacePolicies, brokerService.getPulsar().getConfig().getClusterName());
         topicPolicies.getDelayedDeliveryEnabled().updateNamespaceValue(
                 Optional.ofNullable(namespacePolicies.delayed_delivery_policies)
                         .map(DelayedDeliveryPolicies::isActive).orElse(null));
@@ -299,7 +302,6 @@ protected void updateTopicPolicyByNamespacePolicy(Policies namespacePolicies) {
         updateNamespaceSubscriptionDispatchRate(namespacePolicies,
             brokerService.getPulsar().getConfig().getClusterName());
         updateSchemaCompatibilityStrategyNamespaceValue(namespacePolicies);
-        updateNamespaceDispatchRate(namespacePolicies, brokerService.getPulsar().getConfig().getClusterName());
         topicPolicies.getSchemaValidationEnforced().updateNamespaceValue(namespacePolicies.schema_validation_enforced);
         topicPolicies.getEntryFilters().updateNamespaceValue(namespacePolicies.entryFilters);
 
diff --git a/pulsar-broker/src/main/java/org/apache/pulsar/broker/service/persistent/SystemTopic.java b/pulsar-broker/src/main/java/org/apache/pulsar/broker/service/persistent/SystemTopic.java
index f2cec2138a3a0..2eb957353010c 100644
--- a/pulsar-broker/src/main/java/org/apache/pulsar/broker/service/persistent/SystemTopic.java
+++ b/pulsar-broker/src/main/java/org/apache/pulsar/broker/service/persistent/SystemTopic.java
@@ -19,15 +19,19 @@
 package org.apache.pulsar.broker.service.persistent;
 
 import java.util.List;
+import java.util.Optional;
 import java.util.concurrent.CompletableFuture;
+import javax.annotation.Nonnull;
 import org.apache.bookkeeper.mledger.ManagedLedger;
 import org.apache.pulsar.broker.PulsarServerException;
 import org.apache.pulsar.broker.namespace.NamespaceService;
 import org.apache.pulsar.broker.service.BrokerService;
+import org.apache.pulsar.broker.service.PublishRateLimiter;
 import org.apache.pulsar.broker.service.plugin.EntryFilter;
 import org.apache.pulsar.common.naming.SystemTopicNames;
 import org.apache.pulsar.common.naming.TopicName;
 import org.apache.pulsar.common.policies.data.EntryFilters;
+import org.apache.pulsar.common.policies.data.Policies;
 
 public class SystemTopic extends PersistentTopic {
 
@@ -111,4 +115,19 @@ public EntryFilters getEntryFiltersPolicy() {
     public List<EntryFilter> getEntryFilters() {
         return null;
     }
+
+    @Override
+    public PublishRateLimiter getBrokerPublishRateLimiter() {
+        return PublishRateLimiter.DISABLED_RATE_LIMITER;
+    }
+
+    @Override
+    public void updateResourceGroupLimiter(@Nonnull Policies namespacePolicies) {
+        // nothing todo.
+    }
+
+    @Override
+    public Optional<DispatchRateLimiter> getBrokerDispatchRateLimiter() {
+        return Optional.empty();
+    }
 }
diff --git a/pulsar-broker/src/test/java/org/apache/pulsar/broker/service/PrecisTopicPublishRateThrottleTest.java b/pulsar-broker/src/test/java/org/apache/pulsar/broker/service/PrecisTopicPublishRateThrottleTest.java
index b13f150387bee..b8cff6f838264 100644
--- a/pulsar-broker/src/test/java/org/apache/pulsar/broker/service/PrecisTopicPublishRateThrottleTest.java
+++ b/pulsar-broker/src/test/java/org/apache/pulsar/broker/service/PrecisTopicPublishRateThrottleTest.java
@@ -27,6 +27,8 @@
 import lombok.Cleanup;
 import lombok.extern.slf4j.Slf4j;
 import org.apache.commons.lang3.reflect.FieldUtils;
+import org.apache.pulsar.broker.BrokerTestUtil;
+import org.apache.pulsar.client.admin.PulsarAdmin;
 import org.apache.pulsar.client.api.MessageId;
 import org.apache.pulsar.common.policies.data.PublishRate;
 import org.apache.pulsar.common.util.RateLimiter;
@@ -115,6 +117,23 @@ public void testProducerBlockedByPrecisTopicPublishRateLimiting() throws Excepti
         super.internalCleanup();
     }
 
+    @Test
+    public void testSystemTopicPublishNonBlock() throws Exception {
+        super.baseSetup();
+        PublishRate publishRate = new PublishRate(1,10);
+        admin.namespaces().setPublishRate("prop/ns-abc", publishRate);
+        final String topic = BrokerTestUtil.newUniqueName("persistent://prop/ns-abc/tp");
+        PulsarAdmin admin1 = PulsarAdmin.builder().serviceHttpUrl(brokerUrl != null
+            ? brokerUrl.toString() : brokerUrlTls.toString()).readTimeout(5, TimeUnit.SECONDS).build();
+        admin1.topics().createNonPartitionedTopic(topic);
+        admin1.topicPolicies().setDeduplicationStatus(topic, true);
+        admin1.topicPolicies().setDeduplicationStatus(topic, false);
+        // cleanup.
+        admin.namespaces().removePublishRate("prop/ns-abc");
+        admin1.close();
+        super.internalCleanup();
+    }
+
     @Test
     public void testPrecisTopicPublishRateLimitingProduceRefresh() throws Exception {
         PublishRate publishRate = new PublishRate(1,10);
diff --git a/pulsar-broker/src/test/java/org/apache/pulsar/client/api/MessageDispatchThrottlingTest.java b/pulsar-broker/src/test/java/org/apache/pulsar/client/api/MessageDispatchThrottlingTest.java
index 4f4affc39d316..fc82cdc5badf5 100644
--- a/pulsar-broker/src/test/java/org/apache/pulsar/client/api/MessageDispatchThrottlingTest.java
+++ b/pulsar-broker/src/test/java/org/apache/pulsar/client/api/MessageDispatchThrottlingTest.java
@@ -33,6 +33,7 @@
 import java.util.List;
 import java.util.Map;
 import java.util.Optional;
+import java.util.UUID;
 import java.util.concurrent.CountDownLatch;
 import java.util.concurrent.ScheduledExecutorService;
 import java.util.concurrent.TimeUnit;
@@ -48,6 +49,8 @@
 import org.apache.pulsar.common.policies.data.ClusterData;
 import org.apache.pulsar.common.policies.data.DispatchRate;
 import org.apache.pulsar.common.policies.data.Policies;
+import org.apache.pulsar.common.policies.data.PublishRate;
+import org.apache.pulsar.common.policies.data.RetentionPolicies;
 import org.apache.pulsar.common.policies.data.impl.DispatchRateImpl;
 import org.awaitility.Awaitility;
 import org.slf4j.Logger;
@@ -211,6 +214,42 @@ public void testMessageRateDynamicallyChange() throws Exception {
         producer.close();
     }
 
+    @SuppressWarnings("deprecation")
+    @Test
+    public void testSystemTopicDeliveryNonBlock() throws Exception {
+        final String namespace = "my-property/throttling_ns";
+        admin.namespaces().createNamespace(namespace, Sets.newHashSet("test"));
+        final String topicName = "persistent://" + namespace + "/" + UUID.randomUUID().toString().replaceAll("-", "");
+        admin.topics().createNonPartitionedTopic(topicName);
+        // Set a rate limitation.
+        DispatchRate dispatchRate = DispatchRate.builder()
+                .dispatchThrottlingRateInMsg(1)
+                .dispatchThrottlingRateInByte(-1)
+                .ratePeriodInSecond(360)
+                .build();
+        admin.namespaces().setDispatchRate(namespace, dispatchRate);
+
+        // Verify the limitation does not take effect. in other words, the topic policies should takes effect.
+        PersistentTopic persistentTopic =
+                (PersistentTopic) pulsar.getBrokerService().getTopic(topicName, false).join().get();
+        admin.topicPolicies().setPublishRate(topicName, new PublishRate(1000, 1000));
+        Awaitility.await().untilAsserted(() -> {
+            assertNotNull(persistentTopic.getHierarchyTopicPolicies().getPublishRate().getTopicValue());
+        });
+        admin.topicPolicies().setRetention(topicName, new RetentionPolicies(1000, 1000));
+        Awaitility.await().untilAsserted(() -> {
+            assertNotNull(persistentTopic.getHierarchyTopicPolicies().getRetentionPolicies().getTopicValue());
+        });
+        admin.topicPolicies().setMessageTTL(topicName, 1000);
+        Awaitility.await().untilAsserted(() -> {
+            assertNotNull(persistentTopic.getHierarchyTopicPolicies().getMessageTTLInSeconds().getTopicValue());
+        });
+
+        // cleanup.
+        admin.topics().delete(topicName);
+        admin.namespaces().removeDispatchRate(namespace);
+    }
+
     /**
      * verify: consumer should not receive all messages due to message-rate throttling
      *