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Admin user can't create users

So, I was using Horizon to try and elevate someone to the admin level without deleting their account and re-creating them.

When I tried adding them to the admin group, the master "admin" user lost their ability to create new users or instance flavours in Horizon, and the user who I tried promoting ended up with that ability. Trying to switch back, it broke so now neither have that ability.

How did this happen?

I've created a full MySQL dump of the keystone database (sensitive data changed) here:

I'm sadly extremely new to OpenStack and even used OpenCenter to even deploy it.

So, I guess my main question is, what roles for what tenants do I need to set to allow the admin user to create users and edit flavours?