diff --git a/lib/neutron b/lib/neutron
index 4847e87f2f..62f7366e7e 100644
--- a/lib/neutron
+++ b/lib/neutron
@@ -183,9 +183,14 @@ function configure_neutron_new {
     # Neutron API server & Neutron plugin
     if is_service_enabled neutron-api; then
         local policy_file=$NEUTRON_CONF_DIR/policy.json
-        cp $NEUTRON_DIR/etc/policy.json $policy_file
         # Allow neutron user to administer neutron to match neutron account
-        sed -i 's/"context_is_admin":  "role:admin"/"context_is_admin":  "role:admin or user_name:neutron"/g' $policy_file
+        # NOTE(amotoki): This is required for nova works correctly with neutron.
+        if [ -f $NEUTRON_DIR/etc/policy.json ]; then
+            cp $NEUTRON_DIR/etc/policy.json $policy_file
+            sed -i 's/"context_is_admin":  "role:admin"/"context_is_admin":  "role:admin or user_name:neutron"/g' $policy_file
+        else
+            echo '{"context_is_admin":  "role:admin or user_name:neutron"}' > $policy_file
+        fi
 
         cp $NEUTRON_DIR/etc/api-paste.ini $NEUTRON_CONF_DIR/api-paste.ini
 
diff --git a/lib/neutron-legacy b/lib/neutron-legacy
index be5b73ffa6..2fdb6db6f6 100644
--- a/lib/neutron-legacy
+++ b/lib/neutron-legacy
@@ -699,10 +699,15 @@ function _configure_neutron_common {
     cp $NEUTRON_DIR/etc/neutron.conf.sample $NEUTRON_CONF
 
     Q_POLICY_FILE=$NEUTRON_CONF_DIR/policy.json
-    cp $NEUTRON_DIR/etc/policy.json $Q_POLICY_FILE
 
     # allow neutron user to administer neutron to match neutron account
-    sed -i 's/"context_is_admin":  "role:admin"/"context_is_admin":  "role:admin or user_name:neutron"/g' $Q_POLICY_FILE
+    # NOTE(amotoki): This is required for nova works correctly with neutron.
+    if [ -f $NEUTRON_DIR/etc/policy.json ]; then
+        cp $NEUTRON_DIR/etc/policy.json $Q_POLICY_FILE
+        sed -i 's/"context_is_admin":  "role:admin"/"context_is_admin":  "role:admin or user_name:neutron"/g' $Q_POLICY_FILE
+    else
+        echo '{"context_is_admin":  "role:admin or user_name:neutron"}' > $Q_POLICY_FILE
+    fi
 
     # Set plugin-specific variables ``Q_DB_NAME``, ``Q_PLUGIN_CLASS``.
     # For main plugin config file, set ``Q_PLUGIN_CONF_PATH``, ``Q_PLUGIN_CONF_FILENAME``.