Create pluggable database as other than SYSDBA

We created a seed PDB to contain our security, auditing, and maintenance accounts with tablespaces. We are on 12.2.0.1 with the latest patch set. We can create a new PDB from the seed without any problems. All other user get the ORA-1031, all these users have been granted CREATE PLUGGABLE DATABASE. Am I missing something in creating the PDB from a seed?

connect / as sysdba

create pluggable database sys_from_ourseed from ourseed;

Pluggable database created.

connect system

create pluggable database system_pdb admin user jim identified by "Xxxxxxx1";

Pluggable database created.

create pluggable database system_from_ourseed_1 from ourseed;

  2  create pluggable database system_from_ourseed_1