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By default, only admins can create flavors. You can change that by altering Nova’s policy: https://docs.openstack.org/nova/pike/admin/flavors.html.

When creating a flavor, ensure that it is public. If it is, your non-admin HOT can refer to it by name or ID: https://docs.openstack.org/heat/newton/template_guide/openstack.html#OS::Nova::Server.