diff --git a/staging/src/k8s.io/apiserver/pkg/apis/flowcontrol/bootstrap/default.go b/staging/src/k8s.io/apiserver/pkg/apis/flowcontrol/bootstrap/default.go
index 200cc8a7e01..147128709cd 100644
--- a/staging/src/k8s.io/apiserver/pkg/apis/flowcontrol/bootstrap/default.go
+++ b/staging/src/k8s.io/apiserver/pkg/apis/flowcontrol/bootstrap/default.go
@@ -380,7 +380,7 @@ var (
 		"global-default", "global-default", 9900,
 		flowcontrol.FlowDistinguisherMethodByUserType,
 		flowcontrol.PolicyRulesWithSubjects{
-			Subjects: groups(serviceaccount.AllServiceAccountsGroup),
+			Subjects: groups(user.AllUnauthenticated, user.AllAuthenticated),
 			ResourceRules: []flowcontrol.ResourcePolicyRule{resourceRule(
 				[]string{flowcontrol.VerbAll},
 				[]string{flowcontrol.APIGroupAll},