In this paper, to manage the efficient control of IP packet flows crossing multi-provider networks such as Internet, we propose a SDN(Software Defined Networking)-based policy controller. The proposed policy controller leverages the visibility of underlying network and manages both virtual links and ports to inter-connect networking elements. The controller is capable of quickly composing multiple on-demand virtual networks and dynamically managing the composed networks, thus it can provide more flexible and optimized overlay networking environment to end-user applications. More specifically, we first look into the proposed structure and features of policy controller. With two kinds of service applications, we then verify the applicability of the proposed controller by evaluating its service composition time.