Over the last few weeks, I’ve worked with numerous organizations and individuals troubleshooting connectivity and performance issues associated with Windows 10 Always On VPN, and specifically connections using the Internet Key Exchange version 2 (IKEv2) VPN protocol. An issue that appears with some regularity is when Windows 10 clients fail to connect with error 809. In this scenario, the server will accept connections without issue for a period of time and then suddenly stop accepting requests. When this happens, existing connections continue to work without issue in most cases. Frequently this occurs with Windows Server Routing and Remote Access Service (RRAS) servers configured in a clustered array behind an External Load Balancer (ELB).
Network Address Translation
It is not uncommon to use Network Address Translation (NAT) when configuring Always On VPN. In fact, for most deployments the public IP address for the VPN server resides not on the VPN server, but on an edge firewall or load balancer connected directly to the Internet. The firewall/load balancer is then configured to translate the destination address to the private IP address assigned to the VPN server in the perimeter/DMZ or the internal network. This is known a Destination NAT (DNAT). Using this configuration, the client’s original source IP address is left intact. This configuration presents no issues for Always On VPN.
Source Address Translation
When troubleshooting these issues, the common denominator seems to be the use of Full NAT, which includes translating the source address in addition to the destination. This results in VPN client requests arriving at the VPN server as appearing not to come from the client’s original IP address, but the IP address of the network device (firewall or load balancer) that is translating the request. Full NAT may be explicitly configured by an administrator, or in the case of many load balancers, configured implicitly because the load balancer is effectively proxying the connection.
Known Issues
IKEv2 VPN connections use IPsec for encryption, and by default, Windows limits the number of IPsec Security Associations (SAs) coming from a single IP address. When a NAT device is performing destination/full NAT, the VPN server sees all inbound IKEv2 VPN requests as coming from the same IP address. When this happens, clients connecting using IKEv2 may fail to connect, most commonly when the server is under moderate to heavy load.
Resolution
The way to resolve this issue is to ensure that any load balancers or NAT devices are not translating the source address but are performing destination NAT only. The following is configuration guidance for F5, Citrix ADC (formerly NetScaler), and Kemp load balancers.
F5
On the F5 BIG-IP load balancer, navigate to the Properties > Configuration page of the IKEv2 UDP 500 virtual server and choose None from the Source Address Translation drop-down list. Repeat this step for the IKEv2 UDP 4500 virtual server.
Citrix ADC
On the Citrix ADC load balancer, navigate to System > Settings > Configure Modes and check the option to Use Subnet IP.
Next, navigate to Traffic Management > Load Balancing > Service Groups and select the IKEv2 UDP 500 service group. In the Settings section click edit and select Use Client IP. Repeat these steps for the IKEv2 UDP 4500 service group.
Kemp
On the Kemp LoadMaster load balancer, navigate to Virtual Services > View/Modify Services and click Modify on the IKEv2 UDP 500 virtual service. Expand Standard Options and select Transparency. Repeat this step for the IKEv2 UDP 4500 virtual service.
Caveat
Making the changes above may introduce routing issues in your environment. When configuring these settings, it may be necessary to configure the VPN server’s default gateway to use the load balancer to ensure proper routing. If this is not possible, consider implementing the workaround below.
Workaround
To fully resolve this issue the above changes should be made to ensure the VPN server can see the client’s original source IP address. If that’s not possible for any reason, the following registry key can be configured to increase the number of established SAs from a single IP address. Be advised this is only a partial workaround and may not fully eliminate failed IKEv2 connections. There are other settings in Windows that can prevent multiple connections from a single IP address which are not adjustable at this time.
To implement this registry change, open an elevated PowerShell command window on the RRAS server and run the following commands. Repeat these commands on all RRAS servers in the organization.
New-ItemProperty -Path ‘HKLM:SYSTEM\CurrentControlSet\Services\IKEEXT\Parameters\’ -Name IkeNumEstablishedForInitialQuery -PropertyType DWORD -Value 50000 -Force
Restart-Service IKEEXT -Force -PassThru
Additional Information
IPsec Traffic May Be Blocked When A Computer is Behind a Load Balancer
Windows 10 Always On VPN IKEv2 Load Balancing with Citrix NetScaler ADC
Windows 10 Always On VPN IKEv2 Load Balancing with F5 BIG-IP
Windows 10 Always On VPN IKEv2 Load Balancing with Kemp LoadMaster
The Internet Key Exchange version 2 (IKEv2) VPN protocol is the protocol of choice when the highest level of security is required for Always On VPN connections. It uses IPsec and features configurable security parameters that allow administrators to adjust policies to meet their specific security requirements. 
A recent update to the Kemp LoadMaster load balancer may cause failed connections for Always On VPN connections using IKEv2. SSTP VPN connections are unaffected.
In a recent post I discussed options for 
The Windows Server Routing and Remote Access Service (RRAS) includes support for the Secure Sockets Tunneling Protocol (SSTP), which is a Microsoft proprietary VPN protocol that uses SSL/TLS for security and privacy of VPN connections. The advantage of using SSTP for Always On VPN is that it is firewall friendly and ensures consistent remote connectivity even behind highly restrictive firewalls.
The Internet Key Exchange version 2 (IKEv2) is the protocol of choice for Always On VPN deployments where the highest level of security is required. Implementing Always On VPN at scale often requires multiple VPN servers to provide sufficient capacity and to provide redundancy. Commonly an Application Delivery Controller (ADC) or load balancer is configured in front of the VPN servers to provide scalability and high availability for Always On VPN.
The Windows Server Routing and Remote Access Service (RRAS) is a popular choice for a VPN server to support Windows 10 Always On VPN deployments. One significant advantage RRAS provides is support for the Secure Socket Tunneling Protocol (SSTP). SSTP is a Microsoft proprietary VPN protocol that uses Transport Layer Security (TLS) to ensure privacy between the VPN client and server. The advantage to using a TLS-based transport is that it leverages the standard HTTPS TCP port 443, making it firewall friendly and ensuring ubiquitous remote access even behind highly restrictive firewalls.
