To obtain a controller for providing a necessary IP communication bandwidth on demand at a reduced price utilizing an FTTH line.

A plurality of FTTH lines are prepared by bases and connected to an IP network, and the respective bases are registered as bases of closed-area groups to be structured on the FTTH lines and IP network. On-demand bandwidth controllers are connected between the FTTH lines of the respective bases and a transmitter receiver. A plurality of tunnels of a layer 3 or 2 where IP packets are transferred are set between the on-demand bandwidth controllers of the respective bands. The on-demand controllers and the on-demand bandwidth controllers of the respective bases are connected by control lines and the number of the FTTH lines to be bundled and the timing are indicated to perform control over bandwidths in compliance with a user's request (demand). The on-demand controllers and customer control unit/centers of the closed-area groups are connected by control lines and it is made possible to register and delete the bases.