In some examples, a controller for a multi-layer network comprising a network layer and an underlying transport layer is configured to obtain abstract link data describing a plurality of candidate links; determine, based at least on the abstract link data, a first solution comprising a network topology for the network layer that includes a first selected subset of the candidate links; determine, after generating a modified network topology based at least on the network topology and the abstract link data, a second solution comprising the modified network topology for the network layer that includes a second selected subset of the candidate links; and output, for configuring the multi-layer network, topology data for one of the first solution or the second solution having a lowest total cost, the lowest total cost including a total resource cost to the network for the one of the first solution or the second solution.