Does take acl.tokens.agent into account

[AceYin0622]

When we trying to create consul cluster with this configuration:

CONSUL_LOCAL_CONFIG={
  "skip_leave_on_interrupt": true,
  "leave_on_terminate": true,
  "primary_datacenter": "dc1",
  "acl": {
    "enabled": true,
    "default_policy": "deny",
    "down_policy": "extend-cache",
    "tokens": {
      "master": "${var.acl_master_token_staging}",
      "agent": "${var.acl_agent_token_staging}",
      "default": "${var.acl_agent_token_staging}"
    }
  },
  "encrypt": "${var.encryption_key_staging}",
  "client_addr": "0.0.0.0"
}'

but the acl.tokens.agent is not in any of the nodes..