A routing management method, comprising the steps of: receiving, by a network controller, a request for creating a Layer 2 Virtual Private Network, wherein the Layer 2 Virtual Private Network comprises a public network, and at least two local area networks connected by using the public network; pre-acquiring, by the network controller, routing information of each router of the public network; determining, by the network controller according to the routing information of each router in the public network and information about a connection between each local area network and the public network, path information of a tunnel that a packet between any two of the local area networks should pass by when being transmitted in the public network; determining (2003, 3003), according to the path information of each tunnel, which interface of a respective router is used to forward the packet to a next router along the tunnel for each router that each tunnel passes by, to determine forwarding information that each router forwards the packet along each tunnel, and allocating, to each router that each tunnel passes by, a public Multi-Protocol Label Switching, MPLS, label according to a preset requirement of a forwarding function of the respective router and processing information that is for the MPLS label before each router forwards the packet, wherein the processing information includes: inserting the MPLS label into the packet, or updating the MPLS label or deleting the MPLS label; and sending (2004, 3005) respective routing control information to each router that each tunnel passes by, wherein the routing control information comprises: the forwarding information that each router forwards the packet along each tunnel, the MPLS label corresponding to each router in each tunnel, and the processing information that is for the MPLS label before each router forwards the packet, so that each router forwards the packet according to the respective routing control information. receiving, by a network controller, a request for creating a Layer 2 Virtual Private Network, wherein the Layer 2 Virtual Private Network comprises a public network, and at least two local area networks connected by using the public network; pre-acquiring, by the network controller, routing information of each router of the public network; determining, by the network controller according to the routing information of each router in the public network and information about a connection between each local area network and the public network, path information of a tunnel that a packet between any two of the local area networks should pass by when being transmitted in the public network; determining (2003, 3003), according to the path information of each tunnel, which interface of a respective router is used to forward the packet to a next router along the tunnel for each router that each tunnel passes by, to determine forwarding information that each router forwards the packet along each tunnel, and allocating, to each router that each tunnel passes by, a public Multi-Protocol Label Switching, MPLS, label according to a preset requirement of a forwarding function of the respective router and processing information that is for the MPLS label before each router forwards the packet, wherein the processing information includes: inserting the MPLS label into the packet, or updating the MPLS label or deleting the MPLS label; and sending (2004, 3005) respective routing control information to each router that each tunnel passes by, wherein the routing control information comprises: the forwarding information that each router forwards the packet along each tunnel, the MPLS label corresponding to each router in each tunnel, and the processing information that is for the MPLS label before each router forwards the packet, so that each router forwards the packet according to the respective routing control information.