VMware Cloud Director 10.6.1.1
The behavior you're experiencing with VM placement and the storage policy is related to how Cloud Director handles multiple independent resource pools/clusters. By default, the Cloud Director placement engine does not automatically load-balance across different datastores if the elasticity of the OVDC is not enabled.
If elasticity of the OVDC is not enabled, VCD cannot decouple the tenant's virtual data center from physical cluster boundaries using the Workload Placement Engine and the hence the VM placement engine always places the VM in the primary resource pool.
To resolve the issue please enable elasticity for the particular OVDC we are looking for balancing the workload. To enable Elasticity please follow the below steps.