bug: ENLabev5Vr-5RpIRvYo1zBlStD0nZnjYg cannot create token for other users as a "User Admin"

[cdr-robot]

Original Issue

From coder/coder#17436

User Admins cannot create tokens for other users despite documentation indicating this should be possible, getting a 'rbac: forbidden' error.

Assignment

@coder

[github-actions]

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