Can't create API tokens from Terraform

I created an account token with "Create Additional Tokens" so that we can create our more complex tokens that require a list of permissions instead of having to manage them manually

but that token cannot be used to create additional tokens...

│ Error: failed to make http request
│ 
│   with cloudflare_api_token.tunnel_token_global["auth-host"],
│   on cloudflare_tunnels_global.tf line 72, in resource "cloudflare_api_token" "tunnel_token_global":
│   72: resource "cloudflare_api_token" "tunnel_token_global" {
│ 
│ POST "https://api.cloudflare.com/client/v4/user/tokens": 403 Forbidden {"success":false,"errors":[{"code":9109,"message":"Valid user-level authentication not found"}],"messages":[],"result":null}


what am I missing?
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