I create a user with the following set of commands. This should create user in both admin
db as well as my target db (c2d):
# mongo 127
Our experience with this issue on MongoDB (3.2.4) is that it seems a bug or a undocumented feature. If you attempt to create the users and roles from a remote shell (not localhost), the users are created but as soon as you leave the shell they are gone (they are transient to that session) and not really persisted.
Solution: Just try to create your users (without authentication enabled initially on MongoDB) and do it directly on the console of your DB server (localhost).