diff --git a/devstack/plugin.sh b/devstack/plugin.sh
index bafac8c395..e6bd7c8331 100644
--- a/devstack/plugin.sh
+++ b/devstack/plugin.sh
@@ -407,7 +407,7 @@ function octavia_configure {
     iniset $OCTAVIA_CONF certificates server_certs_key_passphrase insecure-key-do-not-use-this-key
 
     if [[ "$OCTAVIA_USE_LEGACY_RBAC" == "True" ]]; then
-        cp $OCTAVIA_DIR/etc/policy/admin_or_owner-policy.json $OCTAVIA_CONF_DIR/policy.json
+        cp $OCTAVIA_DIR/etc/policy/admin_or_owner-policy.yaml $OCTAVIA_CONF_DIR/policy.yaml
     fi
 
     # create dhclient.conf file for dhclient
diff --git a/doc/source/configuration/policy.rst b/doc/source/configuration/policy.rst
index fc8217b1d7..f257345ef3 100644
--- a/doc/source/configuration/policy.rst
+++ b/doc/source/configuration/policy.rst
@@ -36,19 +36,22 @@ the load-balancer API:
     It is equivalent to 'rule:context_is_admin or {auth_strategy == noauth}'
     if that would be valid syntax.
 
+Legacy Admin or Owner Policy
+----------------------------
+
 An alternate policy file has been provided in octavia/etc/policy called
-admin_or_owner-policy.json that removes the load-balancer RBAC role
+admin_or_owner-policy.yaml that removes the load-balancer RBAC role
 requirement. Please see the README.rst in that directory for more information.
 
 Sample File Generation
 ----------------------
 
-To generate a sample policy.json file from the Octavia defaults, run the
+To generate a sample policy.yaml file from the Octavia defaults, run the
 oslo policy generation script::
 
     oslopolicy-sample-generator
     --config-file etc/policy/octavia-policy-generator.conf
-    --output-file policy.json.sample
+    --output-file policy.yaml.sample
 
 Merged File Generation
 ----------------------
diff --git a/etc/policy/README.rst b/etc/policy/README.rst
index af7af02ba4..17b3318365 100644
--- a/etc/policy/README.rst
+++ b/etc/policy/README.rst
@@ -2,10 +2,10 @@
 Octavia Sample Policy Files
 ===========================
 
-The sample policy.json files described here can be copied into
-/etc/octavia/policy.json to override the default RBAC policy for Octavia.
+The sample policy.yaml files described here can be copied into
+/etc/octavia/policy.yaml to override the default RBAC policy for Octavia.
 
-admin_or_owner-policy.json
+admin_or_owner-policy.yaml
 --------------------------
 This policy file disables the requirement for load-balancer service users to
 have one of the load-balancer:* roles.  It provides a similar policy to
diff --git a/etc/policy/admin_or_owner-policy.json b/etc/policy/admin_or_owner-policy.json
deleted file mode 100644
index 190516b3b0..0000000000
--- a/etc/policy/admin_or_owner-policy.json
+++ /dev/null
@@ -1,11 +0,0 @@
-{
-    "context_is_admin": "role:admin or role:load-balancer_admin",
-    "admin_or_owner": "is_admin:True or project_id:%(project_id)s",
-
-    "load-balancer:read": "rule:admin_or_owner",
-    "load-balancer:read-global": "is_admin:True",
-    "load-balancer:write": "rule:admin_or_owner",
-    "load-balancer:read-quota": "rule:admin_or_owner",
-    "load-balancer:read-quota-global": "is_admin:True",
-    "load-balancer:write-quota": "is_admin:True"
-}
diff --git a/etc/policy/admin_or_owner-policy.yaml b/etc/policy/admin_or_owner-policy.yaml
new file mode 100644
index 0000000000..d81d7a203f
--- /dev/null
+++ b/etc/policy/admin_or_owner-policy.yaml
@@ -0,0 +1,18 @@
+# This policy.yaml will revert the Octavia API to follow the legacy
+# admin-or-owner RBAC policies.
+# It provides a similar policy to legacy OpenStack policies where any
+# user or admin has access to load-balancer resources that they own.
+# Users with the admin role has access to all load-balancer resources,
+# whether they own them or not.
+
+# Role Rules
+"context_is_admin": "role:admin or role:load-balancer_admin"
+"admin_or_owner": "is_admin:True or project_id:%(project_id)s"
+
+# Rules
+"load-balancer:read": "rule:admin_or_owner"
+"load-balancer:read-global": "is_admin:True"
+"load-balancer:write": "rule:admin_or_owner"
+"load-balancer:read-quota": "rule:admin_or_owner"
+"load-balancer:read-quota-global": "is_admin:True"
+"load-balancer:write-quota": "is_admin:True"
diff --git a/etc/policy/octavia-policy-generator.conf b/etc/policy/octavia-policy-generator.conf
index 5bb27c1f96..0364582bb0 100644
--- a/etc/policy/octavia-policy-generator.conf
+++ b/etc/policy/octavia-policy-generator.conf
@@ -1,4 +1,4 @@
 [DEFAULT]
-format = json
-output_file = etc/octavia/policy.json.sample
+format = yaml
+output_file = etc/octavia/policy.yaml.sample
 namespace = octavia
diff --git a/specs/template.rst b/specs/template.rst
index 2680c9c739..bb27668c13 100644
--- a/specs/template.rst
+++ b/specs/template.rst
@@ -277,7 +277,7 @@ Neutron's attribute map facility should have the following:
 
 * Discuss any API policy changes, and discuss what things a deployer needs to
   think about when defining their API policy. This is in reference to the
-  policy.json file.
+  policy.yaml file.
 
 Note that the schema should be defined as restrictively as
 possible. Parameters which are required should be marked as such and
diff --git a/tools/misc-sanity-checks.sh b/tools/misc-sanity-checks.sh
index 83f1e1e1ff..bb3d2e211c 100755
--- a/tools/misc-sanity-checks.sh
+++ b/tools/misc-sanity-checks.sh
@@ -33,13 +33,13 @@ check_pot_files_errors () {
 }
 
 check_identical_policy_files () {
-    # For unit tests, we maintain their own policy.json file to make test suite
+    # For unit tests, we maintain their own policy.yaml file to make test suite
     # independent of whether it's executed from the octavia source tree or from
     # site-packages installation path. We don't want two copies of the same
     # file to diverge, so checking that they are identical
-    diff etc/policy.json octavia/tests/etc/policy.json 2>&1 > /dev/null
+    diff etc/policy.yaml octavia/tests/etc/policy.yaml 2>&1 > /dev/null
     if [ "$?" -ne 0 ]; then
-        echo "policy.json files must be identical!" >>$FAILURES
+        echo "policy.yaml files must be identical!" >>$FAILURES
     fi
 }