Hi,
1) I understand "free tier" as starter package. If so, no you don't have that limit. Your limits are at
All Quotas page at the cloud console.
As far as I know, you have more than 2 IP's, because each instance (VM) will be created with its own public IP. You can convert an IP into static after the machine is created (also you can do that before creating)
I suggest you to create an ordinary instance (as your second VM) and then convert that IP into static.
You can update the topic if that doesn't work.
2) Onto the other question, once I was looking for a solution for 1 IP per multi instance. But it seems not possible in terms of your need. But you can use
a) individual IPs per VM to solve your problem
b) run docker inside your one instance (two or more dockers will be running on 1 instance with 1 public/static IP)
c) you can aggregate two different instances through a custom load balancer. But you can't know which one will reply. So this is not a solution I believe.
Best