cloud-init overriding set-name in netplan file

After creating an Ubuntu 22.04 instance in OpenStack the following netplan file is generated:
```
# cat /etc/netplan/50-cloud-init.yaml
# This file is generated from information provided by the datasource. Changes
# to it will not persist across an instance reboot. To disable cloud-init's
# network configuration capabilities, write a file
# /etc/cloud/cloud.cfg.d/99-disable-network-config.cfg with the following:
# network: {config: disabled}
network:
    version: 2
    ethernets:
        ens3:
            accept-ra: true
            dhcp4: true
            dhcp6: true
            match:
                macaddress: fa:16:3e:c7:f9:7e
            mtu: 1500
            set-name: ens3
```

With the matching links:
```
# ip -br l
lo UNKNOWN 00:00:00:00:00:00 <LOOPBACK,UP,LOWER_UP>
ens3 UP fa:16:3e:c7:f9:7e <BROADCAST,MULTICAST,UP,LOWER_UP>
```

I was then trying to rename the interface from "ens3" to "eth0", updating the file like so:
```
# cat /etc/netplan/50-cloud-init.yaml
# This file is generated from information provided by the datasource. Changes
# to it will not persist across an instance reboot. To disable cloud-init's
# network configuration capabilities, write a file
# /etc/cloud/cloud.cfg.d/99-disable-network-config.cfg with the following:
# network: {config: disabled}
network:
    version: 2
    ethernets:
        eth0:
            accept-ra: true
            dhcp4: true
            dhcp6: true
            match:
                macaddress: fa:16:3e:c7:f9:7e
            mtu: 1500
            set-name: eth0
```

Applying the config works, the interface is renamed without dropping my SSH connection:
```
# netplan apply

# ip -br l
lo UNKNOWN 00:00:00:00:00:00 <LOOPBACK,UP,LOWER_UP>
eth0 UP fa:16:3e:c7:f9:7e <BROADCAST,MULTICAST,UP,LOWER_UP>
```

So far so good, but now I reboot the machine, and it will not come back online:
```
# reboot
Connection to XXX.XXX.XXX.XXX closed by remote host.
Connection to XXX.XXX.XXX.XXX closed.
```

Logging in via a locally connected console I can see the following:
```
# ip -br l
lo UNKNOWN 00:00:00:00:00:00 <LOOPBACK,UP,LOWER_UP>
ens3 DOWN fa:16:3e:c7:f9:7e <BROADCAST,MULTICAST>
```

So for some reason the interface comes up as "ens3" again, also it has no address configuration assigned which is the reason I can not reach it. If I then run a manual "netplan apply" I can get it online again:

```
# netplan apply
# ip -br l
lo UNKNOWN 00:00:00:00:00:00 <LOOPBACK,UP,LOWER_UP>
eth0 UP fa:16:3e:c7:f9:7e <BROADCAST,MULTICAST,UP,LOWER_UP>
```

Now logged in over SSH again checking the dmesg log for renames the following can be seen:
```
# dmesg | grep rename
[ 2.142770] virtio_net virtio0 ens3: renamed from eth0
[ 6.089816] virtio_net virtio0 eth0: renamed from ens3
[ 7.253661] virtio_net virtio0 ens3: renamed from eth0
[ 278.607558] virtio_net virtio0 eth0: renamed from ens3
```

So the network name has been flapping back and forth between "ens3" and "eth0".

After digging around I think this is what happens:
```
[ 2.142770] virtio_net virtio0 ens3: renamed from eth0 <- systemd-networkd, as part of initramfs
[ 6.089816] virtio_net virtio0 eth0: renamed from ens3 <- systemd-networkd, as part of booted OS, using the files generated by my initial "netplan apply".
[ 7.253661] virtio_net virtio0 ens3: renamed from eth0 <- cloud-init, for some reason
[ 278.607558] virtio_net virtio0 eth0: renamed from ens3 <- my manual "netplan apply" after logging in to the console
```

Looking at /var/log/cloud-init.log the following message is seen:
```
2023-02-06 07:57:27,270 - __init__.py[DEBUG]: Detected interfaces {'eth0': {'downable': True, 'device_id': '0x0001', 'driver': 'virtio_net', 'mac': 'fa:16:3e:c7:f9:7e', 'name': 'eth0', 'up': False}, 'lo': {'downable': False, 'device_id': None, 'driver': None, 'mac': '00:00:00:00:00:00', 'name': 'lo', 'up': True}}
2023-02-06 07:57:27,270 - __init__.py[DEBUG]: achieving renaming of [['fa:16:3e:c7:f9:7e', 'ens3', None, None]] with ops [('rename', 'fa:16:3e:c7:f9:7e', 'ens3', ('eth0', 'ens3'))]
2023-02-06 07:57:27,270 - subp.py[DEBUG]: Running command ['ip', 'link', 'set', 'eth0', 'name', 'ens3'] with allowed return codes [0] (shell=False, capture=True)
```

I had a hard time understanding how cloud-init knew about the previous "ens3" name initially, but now I think this has been persisted in the obj.pkl at initial install time boot and is now picked up on subsequent boots, from that same log:
```
2023-02-06 07:57:27,211 - util.py[DEBUG]: Reading from /var/lib/cloud/instance/obj.pkl (quiet=False)
```

Taking a look in the file:
```
# cat p.py
#!/usr/bin/env python3

import pickle

# open a file, where you stored the pickled data
with open('/var/lib/cloud/instance/obj.pkl', 'rb') as file:
    data = pickle.load(file)

print(data.network_config)
```

```
# ./p.py
{'version': 1, 'config': [{'mtu': 1500, 'type': 'physical', 'accept-ra': True, 'subnets': [{'type': 'dhcp4'}, {'type': 'dhcp6'}], 'mac_address': 'fa:16:3e:c7:f9:7e', 'name': 'ens3'}, {'type': 'nameserver', 'address': 'XXX.XXX.XXX.XXX'}, {'type': 'nameserver', 'address': 'YYYY:YYYY:YYYY::YYYY:YYYY:YYYY'}]}
```

From what I can tell this "name" is picked up in the openstack helper at https://github.com/canonical/cloud-init/blob/483f79cb3b94c8c7d176e748892a040c71132cb3/cloudinit/sources/helpers/openstack.py#L715

So... the question then is, how should this work? Right now it seems cloud-init is helping me with a rename even if I have asked the netplan file to set another name than the machine had at initial install.

One thing that occured to me is that maybe I am expected to feed cloud-init user-data so it can know initially that I want the interface called "eth0", but reading https://cloudinit.readthedocs.io/en/22.4.2/topics/network-config.html it states "User-data cannot change an instance’s network configuration." so it seems this is not expected behaviour.

For now I guess the simplest workaround is to just disable the network management parts as mentioned in the generated netplan file, this works:
```
# echo "network: {config: disabled}" > /etc/cloud/cloud.cfg.d/99-disable-network-config.cfg
# reboot
```

Now the machine comes up by itself, and there are less renames happening:
```
# dmesg | grep rename
[ 2.165152] virtio_net virtio0 ens3: renamed from eth0
[ 6.108291] virtio_net virtio0 eth0: renamed from ens3
```

It feels strange to have to disable the network management parts... What would be the correct way to deal with this situation?