Role Based Access Control (RBAC) as defined by NIST is based on the concept of global roles. Global, in this case, means the scope of the application. So if you have the role of ADMIN, and you are in a globally scoped RBAC based application, that role applies to all APIs and resources within the program.
OpenStack was written assuming that the ADMIN role was a global role. But then it was implemented as a non-global role. It was implemented as a role scoped to a tenant. The term tenant was the original (and I would argue, better) term for what was later called Project, and then again expanded to Domains as well.
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