public static Capacity from(ClusterResources min, ClusterResources max, boolean required, boolean canFail) {
        return new Capacity(min, max, IntRange.empty(), required, canFail, NodeType.tenant, Optional.empty(), ClusterInfo.empty());
    }
Create a non-required, failable capacity request
config-provisioning/src/main/java/com/yahoo/config/provision/Capacity.java