An operating mode determining unit determines an operating mode of each of a plurality of vehicles to be either one of a normal operating mode and an energy saving mode on the basis of a necessary boarding and alighting time which is required to allow passengers to board or alight from the vehicles at each of a plurality of stations. An index value specifying unit specifies an index value on the basis of total energy consumption when the vehicles operate in the operating mode determined by the operating mode determining unit, a difference between the necessary boarding and alighting time and a boarding and alighting time, or the number of changing times of operating modes. An operating plan determining unit determines the operating mode of each of the vehicles to be an operating mode having a smallest index value.