Description of problem:
On a fresh system change UID_MAX to be higher than current max UID. After this new users are created with UIDs higher than current max UID, while there is a large gap between UID_MIN and old UID_MAX where new UIDs could be allocated. 

Version-Release number of selected component (if applicable):
shadow-utils-4.6-12.el8.x86_64

Steps to Reproduce:
Information from the Customer on how the issue is getting reproduced on a fresh installation:

-----------------------------------------------------------------
Fresh install, so only standard users, UID < 1000
[root@jumpy ~]# cat /etc/redhat-release 
Red Hat Enterprise Linux release 8.4 (Ootpa)
[root@jumpy ~]# grep nobody /etc/passwd
nobody:x:65534:65534:Kernel Overflow User:/:/sbin/nologin
[root@jumpy ~]# grep UID_ /etc/login.defs
UID_MIN                  1000
UID_MAX                 60000
[root@jumpy ~]# useradd okuser
[root@jumpy ~]# id okuser
uid=1004(okuser) gid=1004(okuser) groups=1004(okuser)
[root@jumpy ~]# vi /etc/login.defs
[root@jumpy ~]# grep UID_ /etc/login.defs
UID_MIN                  1000
UID_MAX                 90000
[root@jumpy ~]# useradd nokuser
[root@jumpy ~]# id nokuser
uid=65535(nokuser) gid=1005(nokuser) groups=1005(nokuser)
-----------------------------------------------------------------

Actual results:
Users are created starting with UID 65535 (current max UID + 1 )

Expected results:
Users are created with UIDs starting with UID_MIN - inside the pool between UID_MIN and old UID_MAX first