If you just want to limit bandwidth, I'd strongly suggest just using a Limit action in the Action field of your APCL/URLF policy layer. Enabling QoS opens up a bit of a can of worms and is really only appropriate if you want to do bandwidth guarantees, Weighted Fair Queuing, DiffServ or Low-latency Queuing. So just define a network object or Access Role matching those you want to limit and use it as the source in a rule with a 2mbps Limit action defined. All traffic that matches that rule will share the 2Mbps limit, the enforced limit is not per user or per connection. Everything else will share the 20Mbps total along with the limited rule in a FIFO fashion; a Limit is not a guarantee or reservation of bandwidth.
Note that existing connections that are bandwidth-limited in this way will NOT retain their Limit after a stateful failover to the other firewall. New connections initiated through the new cluster member handling the traffic will of course have their limit enforced as expected.
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