The openflow controller include a storage device that stores an application to performing a handover based on a handover policy; and a processor that executes the application stored in storage device; wherein in response to execution of the application, the processor decides handover of the mobile node connected to a first mobile access gateway, and selects a second mobile access gateway as a handover target, and in order to allow a localized mobility anchor connected to the openflow controller to deliver data packets to the mobile node through the second mobile access gateway, instead of the first mobile access gateway, the processor sends a message to each of the first mobile access gateway, the second mobile access gateway, and the localized mobility anchor in response the handover policy.