kestone stuck at "Keystone charm and it's dependencies not yet at expected scale", despite having 3 active units

[Jason Hobbs]

We see this error for about 3 hours and then our build times out:

/var/log/juju/unit-keystone-2.log:2018-11-03 14:44:11 INFO juju-log Keystone charm and it's dependencies not yet at expected scale - deferring identity-relation updates
...
/var/log/juju/unit-keystone-2.log:2018-11-03 17:30:20 INFO juju-log Keystone charm and it's dependencies not yet at expected scale - deferring identity-relation updates

This is despite the fact that we have all 3 units up:
keystone/0* active idle 0/lxd/5 10.244.40.233 5000/tcp Unit is ready
  filebeat/29 active idle 10.244.40.233 Filebeat ready.
  hacluster-keystone/0* active idle 10.244.40.233 Unit is ready and clustered
  nrpe-container/8 active idle 10.244.40.233 icmp,5666/tcp ready
  telegraf/30 active idle 10.244.40.233 9103/tcp Monitoring keystone/0
keystone/1 active idle 1/lxd/6 10.244.40.251 5000/tcp Unit is ready
  filebeat/54 active idle 10.244.40.251 Filebeat ready.
  hacluster-keystone/1 active idle 10.244.40.251 Unit is ready and clustered
  nrpe-container/33 active idle 10.244.40.251 icmp,5666/tcp ready
  telegraf/55 active idle 10.244.40.251 9103/tcp Monitoring keystone/1
keystone/2 active idle 2/lxd/6 10.244.41.10 5000/tcp Unit is ready
  filebeat/56 active idle 10.244.41.10 Filebeat ready.
  hacluster-keystone/2 active idle 10.244.41.10 Unit is ready and clustered
  nrpe-container/35 active idle 10.244.41.10 icmp,5666/tcp ready
  telegraf/57 active idle 10.244.41.10 9103/tcp Monitoring keystone/2

bundle:
http://paste.ubuntu.com/p/gmB56YQzDc/