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This can not be done currently the way you want to do it.

What you can do is restrict regular users from creating floating IPs via policy.json.

/etc/neutron/policy.json ( "create_floatingip": "rule:regular_user" ).

Then you can create (allocate) the floating IPs that you want to each tenant and those are the only FIPs that the tenant can use.

The other problem that you might run in to is that during the creation of a router, the router needs a FIP for doing snat and will try to create FIP from the available pool and it might fail if you change create_foatingip to admin.