By default, Delegated Administrator lets you create a new user without assigning a service package to the user.
You can change the default setting so that all new users must have at least one service package assigned to them.
Open the daconfig.properties file in a text editor.
The daconfig.properties file is located by default in the following directory:
Change the value of the user.atleastOneServicePackage property from false to true.
By default, this value is false.
After you set this value to true, when you use the Create New User wizard in the Delegated Administrator console, you must assign at least one service package to successfully create the new user.