diff --git a/drivers/default/src/main/java/org/onosproject/driver/pipeline/OltPipeline.java b/drivers/default/src/main/java/org/onosproject/driver/pipeline/OltPipeline.java
index f6d16f4..6cc63c2 100644
--- a/drivers/default/src/main/java/org/onosproject/driver/pipeline/OltPipeline.java
+++ b/drivers/default/src/main/java/org/onosproject/driver/pipeline/OltPipeline.java
@@ -238,21 +238,20 @@
                 .findAny();
 
         if (!vlanIntruction.isPresent()) {
-            fail(fwd, ObjectiveError.BADPARAMS);
-            return;
-        }
-
-        L2ModificationInstruction vlanIns =
-                (L2ModificationInstruction) vlanIntruction.get();
-
-        if (vlanIns.subtype() == L2ModificationInstruction.L2SubType.VLAN_PUSH) {
-            installUpstreamRules(fwd);
-        } else if (vlanIns.subtype() == L2ModificationInstruction.L2SubType.VLAN_POP) {
-            installDownstreamRules(fwd);
+            installNoModificationRules(fwd);
         } else {
-            log.error("Unknown OLT operation: {}", fwd);
-            fail(fwd, ObjectiveError.UNSUPPORTED);
-            return;
+            L2ModificationInstruction vlanIns =
+                    (L2ModificationInstruction) vlanIntruction.get();
+
+            if (vlanIns.subtype() == L2ModificationInstruction.L2SubType.VLAN_PUSH) {
+                installUpstreamRules(fwd);
+            } else if (vlanIns.subtype() == L2ModificationInstruction.L2SubType.VLAN_POP) {
+                installDownstreamRules(fwd);
+            } else {
+                log.error("Unknown OLT operation: {}", fwd);
+                fail(fwd, ObjectiveError.UNSUPPORTED);
+                return;
+            }
         }
 
         pass(fwd);
@@ -378,6 +377,35 @@
 
     }
 
+    private void installNoModificationRules(ForwardingObjective fwd) {
+        Instructions.OutputInstruction output = (Instructions.OutputInstruction) fetchOutput(fwd, "downstream");
+
+        TrafficSelector selector = fwd.selector();
+
+        Criterion inport = selector.getCriterion(Criterion.Type.IN_PORT);
+        Criterion outerVlan = selector.getCriterion(Criterion.Type.VLAN_VID);
+        Criterion innerVlan = selector.getCriterion(Criterion.Type.INNER_VLAN_VID);
+        Criterion metadata;
+
+        if (inport == null || output == null || innerVlan == null || outerVlan == null) {
+            log.error("Forwarding objective is underspecified: {}", fwd);
+            fail(fwd, ObjectiveError.BADPARAMS);
+            return;
+        }
+
+        metadata = Criteria.matchMetadata(((VlanIdCriterion) innerVlan).vlanId().toShort());
+
+        FlowRule.Builder outer = DefaultFlowRule.builder()
+                .fromApp(fwd.appId())
+                .forDevice(deviceId)
+                .makePermanent()
+                .withPriority(fwd.priority())
+                .withSelector(buildSelector(inport, outerVlan, metadata))
+                .withTreatment(buildTreatment(output));
+
+        applyRules(fwd, outer);
+    }
+
     private void installDownstreamRules(ForwardingObjective fwd) {
         List<Pair<Instruction, Instruction>> vlanOps =
                 vlanOps(fwd,
@@ -614,6 +642,27 @@
     }
 
     private void applyRules(ForwardingObjective fwd,
+                            FlowRule.Builder outer) {
+        FlowRuleOperations.Builder builder = FlowRuleOperations.builder();
+        switch (fwd.op()) {
+            case ADD:
+                builder.add(outer.build());
+                break;
+            case REMOVE:
+                builder.remove(outer.build());
+                break;
+            case ADD_TO_EXISTING:
+                break;
+            case REMOVE_FROM_EXISTING:
+                break;
+            default:
+                log.warn("Unknown forwarding operation: {}", fwd.op());
+        }
+
+        applyFlowRules(builder, fwd);
+    }
+
+    private void applyRules(ForwardingObjective fwd,
                             FlowRule.Builder inner, FlowRule.Builder outer) {
         FlowRuleOperations.Builder builder = FlowRuleOperations.builder();
         switch (fwd.op()) {