Policy.json should be defined by user

User can override and add values to policy.json by creating flat
key-value structure under neutron:server:policy.

Change-Id: I62dc05832a124b361a8d608326cbc6168af754c8
diff --git a/tests/pillar/control_cluster.sls b/tests/pillar/control_cluster.sls
index 1aba7fd..763b549 100644
--- a/tests/pillar/control_cluster.sls
+++ b/tests/pillar/control_cluster.sls
@@ -51,4 +51,8 @@
     audit:
       filter_factory: 'keystonemiddleware.audit:filter_factory'
       map_file: '/etc/pycadf/neutron_api_audit_map.conf'
+    policy:
+      create_subnet: 'rule:admin_or_network_owner'
+      'get_network:queue_id': 'rule:admin_only'
+      'create_network:shared':