I've seen this error message when Jira is struggling to get to an external user directory (Crowd or LDAP for example) and when I'd made a total mess of the internal user scheme once.
Could you check the log file to see if there are errors in there? They can be a lot more useful than what you get on screen.
:) I didn't realized the error message was in the question title ...
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Can you give more details:
Any more details will help...
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