If no-one is able to login then creating a new user is probably not the right way to handle it. Atlassian have provided instructions for getting back in if your admins are locked out:
If you're using Confluence WITHOUT JIRA user management:
If you're using Confluence WITH JIRA user management:
These are for server versions, which I assume you're on because you haven't included a Cloud tag. If you're on Cloud, you need to contact Atlassian support, and they'll get one of your admins back in.
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