While a primary user and a secondary user are possibly co-present, a resource is efficiently allocated to the secondary user, QoS at a fixed level is provided to the secondary user of the carrier that is given a license. Provided is controller 30: including a license determiner 301 that determines whether or not a license is given to a carrier that owns each base station 40 which requests resource allocation; an allocation propriety determiner 302 that determines whether or not it is possible to allocate a resource for a secondary service, based on a used situation of a primary service, and an allocation ratio determiner 303; and an allocation ratio determiner 303 that determines a ratio of resources that are allocated to the base stations 40 that are owned by the carrier which is given the license, based on a prescribed parameter, in a case where the resource allocation is possible.