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In basic zone CloudStack provides Static AWS EIP functionality using static NAT (1:1 NAT) from public IP to VM's private IP in basic zone. Below are the semantics of EIP as implemented in CloudStack. 

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In this semantics, a public IP is allocated for each VM created in basic zone. For deployments where public IP is scarce resource, allocating public IP for each VM will be expensive. Currently there is no provision in the CloudStack to modify this behaviour.   This This proposal provides flexibility to the cloud admin, where they can choose not to allocate public IP to the VM by default.

Design

With createNetworkOffering API, we can specify the set of network services and capabilities of network service that will provided when network is created using the network offering. A capability of Static NAT service will be the right place to provide the admin to make a choice to allocate a public IP by default or not. A new capability 'AssociatePublicIP' will be introduced to set of network service capabilities provided by the CloudStack.

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