Comment 1 for bug 1525380

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James Page (james-page) wrote : Re: identity-admin relation: if admin-password not set, service_password=None

I see the issue here:

    if is_relation_made("cluster"):
        passwd = peer_retrieve('admin_passwd')
        if passwd:
            store_admin_passwd(passwd)

    return passwd

is_relation_made relies on at least one other unit being part of a relation - I suspect that you may be deploying a standalone keystone, in which case this check is false, and the function just returns the default None value from an earlier config call in the get_admin_passwd function.

TBH that entire function needs refactoring to use leader-storage.