Wrong requirements for route user.admin_create

Drupal core allows access to /admin/people/create based on the permission 'administer users'. This is correct by default, in vanilla core. However it ignores any code that has implemented hook_entity_create_access.

This issue is a blocker for contrib module Administer Users by Role.

Steps to reproduce

• Create a custom modules that implements hook_entity_create_access as below (plus XXX.permissions.yml to define the new permission).
• Create a user with permission 'create users' and log on as that user.
• Visit /admin/people/create
• Expected behaviour: can access page.
• Actual behaviour: access denied.

function XXX_entity_create_access(AccountInterface $account, array $context, $entity_bundle) {
  if ($context['entity_type_id'] != 'user') {
    return AccessResult::neutral();
  }

  return AccessResult::allowedIfHasPermission($account, 'create users');
}

Resolution

If the requirement is changed to _entity_create_access: 'user' it works perfectly. The new code is consistent with a variety of other places in Drupal Core.