The default authentication method for admin users to log in from the System directory is Password (Local Directory). The default access policy is configured with Password (Local Directory) as a fallback method so that admins can log in to VMware Identity Manager admin console and Workspace ONE portal

If you create access policies for specific Web and desktop applications that system admins are entitled to, these policies must be configured to include Password (Local Directory) as a fallback authentication method. Otherwise, the admins cannot log in to the application.