Traffic shaping IPsec Mobile VPN with limiters

[NogBadTheBad]

I'm trying to traffic shape, without much luck my IPsec mobile VPN connection the download seems fine but the upload isn't.

I've tried limiter values that work fine on my Guest Wi-Fi and duplicated them for my IPsec mobile VPN connection, I'm seeing the following when connecting:-

1. Connected via 4G only.

2. Directly connected via Wi-Fi and no limiters.

3. Directly connected via Guest Wi-Fi and 5 Mbit/s limiters.

4. Connected via 4G, IPsec mobile VPN and 5 Mbit/s limiters.

[2.4.4-RELEASE][admin@pfsense]/root: ipfw pipe show
00001:   5.000 Mbit/s    0 ms burst 0 
q65537  50 sl. 0 flows (1 buckets) sched 1 weight 1 lmax 0 pri 0 droptail
 sched 65537 type FIFO flags 0x1 256 buckets 0 active
    mask:  0x00 0xffffff00/0x0000 -> 0x00000000/0x0000
00002:   5.000 Mbit/s    0 ms burst 0 
q65538  50 sl. 0 flows (1 buckets) sched 2 weight 1 lmax 0 pri 0 droptail
 sched 65538 type FIFO flags 0x1 256 buckets 0 active
    mask:  0x00 0x00000000/0x0000 -> 0xffffff00/0x0000
00003:   5.000 Mbit/s    0 ms burst 0 
q65539  50 sl. 0 flows (1 buckets) sched 3 weight 1 lmax 0 pri 0 droptail
 sched 65539 type FIFO flags 0x1 256 buckets 0 active
    mask:  0x00 0xffffff00/0x0000 -> 0x00000000/0x0000
00004:   5.000 Mbit/s    0 ms burst 0 
q65540  50 sl. 0 flows (1 buckets) sched 4 weight 1 lmax 0 pri 0 droptail
 sched 65540 type FIFO flags 0x1 256 buckets 0 active
    mask:  0x00 0x00000000/0x0000 -> 0xffffff00/0x0000
[2.4.4-RELEASE][admin@pfsense]/root:

Should I be looking at something else rather than limiters ?

[uptownVagrant]

@nogbadthebad how are you matching the states using the VPN - floating rules? Can you post the rules and order?

[NogBadTheBad]

I assign ip addresses via FreeRadius and have split the 172.16.8.0/24 into 2, the top half are the others that I want to limit.