A token is an account on the bus, and genesis can place the list

novox/hq 04-ISSUES/146. The composed user list names an enrolment user for
every machine with a live token and nothing minted a credential for it, so the
composer left it out as a user with no password — and every enrolment since the
mesh moved to this bus was refused before the mesh heard of it. The comment
above the issuing code already said the account is created before the token is
handed over; now it is. Recorded rather than minted, because the token's secret
is the password.

And 'broker accounts', which composes the same list the declaration carries and
writes it to standard output. For genesis, where no declaration can reach the
machine running the bus because that machine is not yet a node. It says what it
composed; whoever is raising the machine places it. A control plane that wrote
the file itself would have to learn where the bus keeps its configuration and
how to make it reload, which is the module's knowledge.

cmd/mesh-controller/main.go

@@ -88,7 +88,7 @@ func run() error {
 	case "identity":
 		return identityCommand(ctx, args[1:])
 	case "broker":
-		return brokerCommand(args[1:])
+		return brokerCommand(ctx, args[1:])
 	case "serve":
 		return serve(ctx)
 	case "upgrade":