diff --git a/core/api/test-current.txt b/core/api/test-current.txt
index 1e4023eeee182..186e5be92524d 100644
--- a/core/api/test-current.txt
+++ b/core/api/test-current.txt
@@ -134,7 +134,7 @@ package android.app {
     method public static void resumeAppSwitches() throws android.os.RemoteException;
     method @RequiresPermission(android.Manifest.permission.CHANGE_CONFIGURATION) public void scheduleApplicationInfoChanged(java.util.List<java.lang.String>, int);
     method @RequiresPermission(anyOf={android.Manifest.permission.MANAGE_USERS, android.Manifest.permission.INTERACT_ACROSS_USERS}) public void setStopUserOnSwitch(int);
-    method @RequiresPermission(anyOf={android.Manifest.permission.MANAGE_USERS, android.Manifest.permission.CREATE_USERS}) public boolean startUserInBackgroundOnSecondaryDisplay(int, int);
+    method @RequiresPermission(anyOf={android.Manifest.permission.MANAGE_USERS, android.Manifest.permission.INTERACT_ACROSS_USERS}) public boolean startUserInBackgroundOnSecondaryDisplay(int, int);
     method @RequiresPermission(android.Manifest.permission.INTERACT_ACROSS_USERS_FULL) public boolean stopUser(int, boolean);
     method @RequiresPermission(android.Manifest.permission.CHANGE_CONFIGURATION) public boolean updateMccMncConfiguration(@NonNull String, @NonNull String);
     method @RequiresPermission(android.Manifest.permission.DUMP) public void waitForBroadcastIdle();
diff --git a/core/java/android/app/ActivityManager.java b/core/java/android/app/ActivityManager.java
index 576b572dcc9ac..cb7b478d73b46 100644
--- a/core/java/android/app/ActivityManager.java
+++ b/core/java/android/app/ActivityManager.java
@@ -4401,7 +4401,7 @@ public class ActivityManager {
      */
     @TestApi
     @RequiresPermission(anyOf = {android.Manifest.permission.MANAGE_USERS,
-            android.Manifest.permission.CREATE_USERS})
+            android.Manifest.permission.INTERACT_ACROSS_USERS})
     public boolean startUserInBackgroundOnSecondaryDisplay(@UserIdInt int userId,
             int displayId) {
         if (!UserManager.isUsersOnSecondaryDisplaysEnabled()) {
diff --git a/services/core/java/com/android/server/am/UserController.java b/services/core/java/com/android/server/am/UserController.java
index 216a48ec699cc..3fa41c0f04209 100644
--- a/services/core/java/com/android/server/am/UserController.java
+++ b/services/core/java/com/android/server/am/UserController.java
@@ -16,7 +16,6 @@
 
 package com.android.server.am;
 
-import static android.Manifest.permission.CREATE_USERS;
 import static android.Manifest.permission.INTERACT_ACROSS_PROFILES;
 import static android.Manifest.permission.INTERACT_ACROSS_USERS;
 import static android.Manifest.permission.INTERACT_ACROSS_USERS_FULL;
@@ -1482,7 +1481,7 @@ class UserController implements Handler.Callback {
     // defined
     boolean startUserOnSecondaryDisplay(@UserIdInt int userId, int displayId) {
         checkCallingHasOneOfThosePermissions("startUserOnSecondaryDisplay",
-                MANAGE_USERS, CREATE_USERS);
+                MANAGE_USERS, INTERACT_ACROSS_USERS);
 
         // DEFAULT_DISPLAY is used for the current foreground user only
         Preconditions.checkArgument(displayId != Display.DEFAULT_DISPLAY,