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So it transpires we were trying to piggy back on the stellar work by SCS for identity and allow a domain admin for provider networks, but alas Neutron has zero visibility of domains, and secondly only "admin" and "advsvc" can provision in a different project (hard coded, not a policy). Out one remaining option is to create a context that is for the "manager" user, but scoped to the user's project, and that can allow the provider network to be provisioned.