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why I cannot create user through openstack CLI

does any of you know what should I use for "openstack user create" authentication? I can list users with "admin" username ( openstack --os-identity-api-version=3 user list --debug). However, I cannot create a user with the same user (admin) within the same project ( openstack user create --password 123 --project admin sanjose --os-identity-api-version=3 --debug). It says "Unauthorized: The request you have made requires authentication. " It seems to me the policy allows admin to create a new user ( "identity:create_user": "rule:admin_required" in "/opt/stack/keystone/etc/policy.json").Any suggestions on this error? Thanks a lot.