Github user bbende commented on the issue: https://github.com/apache/nifi/pull/772 @YolandaMDavis Thanks for testing this! The behavior you are seeing is interesting, I tested this a few times before submitting the PR and again right now and can't seem to reproduce that. Also had a unit test that simulated starting with only a users file and verified policies were created. Could you use the debugger to try and step into authorizationsHolder.getAllPolicies().isEmpty() and see how isEmpty() is returning false? It should be an unmodifiable HashSet which seems to call HashMap isEmpty() which does return size == 0;
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