In a layer 2 communication device included in multiple layer 2 networks, an identifying unit identifies a layer 3 control packet from among packets passing through, and an embedding unit embeds routing control information for the layer 2 network in the layer 3 control packet. In a layer 3 communication device connected to the multiple layer 2 networks, a selecting unit selects from the multiple layer 2 networks, an optimum L2 network, that is a layer 2 network forming an optimum communication route, based on a communication destination, and a setting unit sets a packet to be transmitted to the optimum L2 network.