add createOuterMap() am: 4afe875063

Original change: https://android-review.googlesource.com/c/platform/frameworks/libs/net/+/2623476

Change-Id: I1f57b7cf06c66f32b30426997bb06152d75e4d4c
Signed-off-by: Automerger Merge Worker <android-build-automerger-merge-worker@system.gserviceaccount.com>