Do you execute some initial steps in bootstrap? I think users-permissions need save all providers into database. In default users-permissions plugin’s bootstrap/index.js, you can see these codes.
module.exports = async ({ strapi }) => {
const pluginStore = strapi.store({ type: 'plugin', name: 'users-permissions' });
await initGrant(pluginStore);
await initEmails(pluginStore);
await initAdvancedOptions(pluginStore);
await strapi.admin.services.permission.actionProvider.registerMany(
usersPermissionsActions.actions
);
await getService('users-permissions').initialize();
......