diff --git a/ascender/api/serializers/oauth2.py b/ascender/api/serializers/oauth2.py
index 62f487eba..58c25cf34 100644
--- a/ascender/api/serializers/oauth2.py
+++ b/ascender/api/serializers/oauth2.py
@@ -82,8 +82,11 @@ def validate_scope(self, value):
             raise serializers.ValidationError(_('Must be a simple space-separated string with allowed scopes {}.').format(self.ALLOWED_SCOPES))
         return value
 
+    def get_owner(self, validated_data):
+        return self.context['request'].user
+
     def create(self, validated_data):
-        validated_data['user'] = self.context['request'].user
+        validated_data['user'] = self.get_owner(validated_data)
         try:
             return super(BaseOAuth2TokenSerializer, self).create(validated_data)
         except oauth2.AccessDeniedError as e:
diff --git a/ascender/api/serializers/user.py b/ascender/api/serializers/user.py
index 6b3e62342..f18aaeebb 100644
--- a/ascender/api/serializers/user.py
+++ b/ascender/api/serializers/user.py
@@ -280,6 +280,22 @@ class UserPersonalTokenSerializer(BaseOAuth2TokenSerializer):
     class Meta:
         read_only_fields = ('user', 'token', 'expires', 'application')
 
+    def validate(self, attrs):
+        attrs = super(UserPersonalTokenSerializer, self).validate(attrs)
+        # owned by the user in the URL; OAuth2TokenAccess.can_add decides whether the requester may issue it
+        owner = self.context['view'].get_parent_object()
+        if owner != self.context['request'].user:
+            if not owner.is_active:
+                raise serializers.ValidationError(_('Cannot create a token for an inactive user.'))
+            # local as DisableLocalAuthMiddleware decides it
+            if settings.DISABLE_LOCAL_AUTH and not (owner.profile.ldap_dn or owner.social_auth.exists() or owner.enterprise_auth.exists()):
+                raise serializers.ValidationError(_('Cannot create a token for a local user while local authentication is disabled.'))
+        attrs['user'] = owner
+        return attrs
+
+    def get_owner(self, validated_data):
+        return validated_data['user']
+
     def create(self, validated_data):
         validated_data['token'] = generate_token()
         validated_data['expires'] = now() + timedelta(seconds=settings.OAUTH2_PROVIDER['ACCESS_TOKEN_EXPIRE_SECONDS'])
diff --git a/ascender/api/views/user.py b/ascender/api/views/user.py
index 3c02ae84f..1c953c166 100644
--- a/ascender/api/views/user.py
+++ b/ascender/api/views/user.py
@@ -86,7 +86,8 @@ class UserPersonalTokenList(SubListCreateAPIView):
     swagger_topic = 'Authentication'
 
     def get_queryset(self):
-        return get_access_token_model().objects.filter(application__isnull=True, user=self.request.user)
+        # the URL user's tokens, limited to those the requester may read (OAuth2TokenAccess)
+        return super(UserPersonalTokenList, self).get_queryset().filter(application__isnull=True)
 
 
 class UserTeamsList(SubListAPIView):
diff --git a/ascender/main/access.py b/ascender/main/access.py
index b21a3ac7c..4fc440f55 100644
--- a/ascender/main/access.py
+++ b/ascender/main/access.py
@@ -791,7 +791,8 @@ class OAuth2TokenAccess(BaseAccess):
      - I am the user of the token
      - I am the superuser
     I can create an OAuth2 Personal Access Token when:
-     - I am a user.  But I can only create a PAT for myself.
+     - I am a user, for myself.
+     - I am a superuser, for any user.
     """
 
     model = OAuth2AccessToken
@@ -814,6 +815,11 @@ def can_change(self, obj, data):
         return self.can_delete(obj)
 
     def can_add(self, data):
+        if 'user' in data:
+            # a token for someone else (the user in a users/<id>/ token URL) is for superusers only
+            owner = get_object_from_data('user', User, data)
+            if owner is not None and owner != self.user and not self.user.is_superuser:
+                return False
         if 'application' in data:
             app = get_object_from_data('application', OAuth2Application, data)
             if app is None:
diff --git a/ascender/main/signals.py b/ascender/main/signals.py
index 08a59a8b2..68fbf546b 100644
--- a/ascender/main/signals.py
+++ b/ascender/main/signals.py
@@ -395,15 +395,23 @@ def activity_stream_create(sender, instance, created, **kwargs):
             changes['labels'] = [label.name for label in instance.labels.iterator()]
             if 'extra_vars' in changes:
                 changes['extra_vars'] = instance.display_extra_vars()
+        actor = get_current_user_or_none()
+        # a token whose owner isn't the actor (issued by an admin, or with no request user) names the owner
+        token_owner = None
         if type(instance) == OAuth2AccessToken:
             changes['token'] = CENSOR_VALUE
-        activity_entry = get_activity_stream_class()(operation='create', object1=object1, changes=json.dumps(changes), actor=get_current_user_or_none())
+            if instance.user_id and (actor is None or instance.user_id != actor.pk):
+                token_owner = instance.user
+                changes['user'] = '{} ({})'.format(token_owner.username, token_owner.pk)
+        activity_entry = get_activity_stream_class()(operation='create', object1=object1, changes=json.dumps(changes), actor=actor)
         # TODO: Weird situation where cascade SETNULL doesn't work
         #      it might actually be a good idea to remove all of these FK references since
         #      we don't really use them anyway.
         if instance._meta.model_name != 'setting':  # Is not conf.Setting instance
             activity_entry.save()
             getattr(activity_entry, object1).add(instance.pk)
+            if token_owner is not None:
+                activity_entry.user.add(token_owner)
         else:
             activity_entry.setting = conf_to_dict(instance)
             activity_entry.save()
diff --git a/ascender/main/tests/functional/api/test_oauth.py b/ascender/main/tests/functional/api/test_oauth.py
index 77cf82a8e..84d141d27 100644
--- a/ascender/main/tests/functional/api/test_oauth.py
+++ b/ascender/main/tests/functional/api/test_oauth.py
@@ -11,7 +11,9 @@
 
 from ascender.main.utils.encryption import decrypt_value, get_encryption_key
 from ascender.api.versioning import reverse, drf_reverse
+from ascender.main.models import ActivityStream
 from ascender.main.models.oauth import OAuth2Application as Application, OAuth2AccessToken as AccessToken
+from ascender.main.request_context import impersonate
 from ascender.main.tests.functional import immediate_on_commit
 from ascender.sso.models import UserEnterpriseAuth
 from ascender.main.models.oauth import OAuth2RefreshToken
@@ -390,3 +392,130 @@ def test_token_values_are_not_rendered_by_str(oauth_application, post, admin):
     for obj in (access_token, refresh_token):
         assert obj.token not in str(obj)
         assert obj.token not in repr(obj)
+
+
+@pytest.mark.django_db
+def test_superuser_issues_personal_token_for_another_user(post, get, admin, alice):
+    response = post(reverse('api:user_personal_token_list', kwargs={'pk': alice.pk}), {'description': 'ci', 'scope': 'read'}, admin, expect=201)
+    token = AccessToken.objects.get(token=response.data['token'])
+    assert token.user == alice
+    assert token.application is None
+    assert response.data['user'] == alice.pk
+    with immediate_on_commit():
+        resp = get(drf_reverse('api:user_me_list', kwargs={'version': 'v2'}), HTTP_AUTHORIZATION='Bearer ' + token.token, status=200)
+    assert json.loads(resp.content)['results'][0]['username'] == 'alice'
+
+
+@pytest.mark.django_db
+@pytest.mark.parametrize('requester', ['alice', 'org_admin', 'system_auditor'])
+def test_personal_token_for_another_user_needs_superuser(post, request, org_member, requester):
+    # org_admin may change org_member (UserAccess), but personal tokens stay owner-or-superuser (OAuth2TokenAccess)
+    user = request.getfixturevalue(requester)
+    post(reverse('api:user_personal_token_list', kwargs={'pk': org_member.pk}), {'scope': 'read'}, user, expect=403)
+    assert AccessToken.objects.count() == 0
+
+
+@pytest.mark.django_db
+def test_personal_token_for_missing_user(post, admin):
+    post(reverse('api:user_personal_token_list', kwargs={'pk': 9999}), {'scope': 'read'}, admin, expect=404)
+    assert AccessToken.objects.count() == 0
+
+
+@pytest.mark.django_db
+def test_personal_token_for_another_external_user(post, admin, alice):
+    # the external-account check applies to the owner, not to the superuser issuing it
+    UserEnterpriseAuth(user=alice, provider='radius').save()
+    with override_settings(RADIUS_SERVER='example.org', ALLOW_OAUTH2_FOR_EXTERNAL_USERS=False):
+        response = post(reverse('api:user_personal_token_list', kwargs={'pk': alice.pk}), {'scope': 'read'}, admin, expect=403)
+    assert 'external authentication provider' in str(response.data['detail'])
+    assert AccessToken.objects.count() == 0
+
+
+@pytest.mark.django_db
+def test_personal_token_for_another_inactive_user(post, admin, alice):
+    alice.is_active = False
+    alice.save()
+    response = post(reverse('api:user_personal_token_list', kwargs={'pk': alice.pk}), {'scope': 'read'}, admin, expect=400)
+    assert 'inactive user' in str(response.data)
+    assert AccessToken.objects.count() == 0
+
+
+@pytest.mark.django_db
+@pytest.mark.parametrize('ldap_dn, status', [('', 400), ('cn=alice,dc=example,dc=org', 201)])
+def test_personal_token_for_another_user_with_local_auth_disabled(post, admin, alice, ldap_dn, status):
+    alice.profile.ldap_dn = ldap_dn
+    alice.profile.save()
+    with override_settings(DISABLE_LOCAL_AUTH=True):
+        response = post(reverse('api:user_personal_token_list', kwargs={'pk': alice.pk}), {'scope': 'read'}, admin, expect=status)
+    if status == 400:
+        assert 'local authentication is disabled' in str(response.data)
+    assert AccessToken.objects.filter(user=alice).count() == (1 if status == 201 else 0)
+
+
+@pytest.mark.django_db
+@pytest.mark.parametrize('requester', ['admin', 'alice'])
+def test_personal_token_for_self(post, request, requester):
+    user = request.getfixturevalue(requester)
+    for url in (reverse('api:user_personal_token_list', kwargs={'pk': user.pk}), reverse('api:o_auth2_token_list')):
+        response = post(url, {'scope': 'read'}, user, expect=201)
+        token = AccessToken.objects.get(token=response.data['token'])
+        assert token.user == user
+        assert token.application is None
+
+
+@pytest.mark.django_db
+def test_other_token_sub_urls_still_issue_to_the_requester(post, admin, org_admin, org_member, organization):
+    # users/<id>/tokens/ and authorized_tokens/ share the permission check, but keep issuing to the requester
+    app = Application.objects.create(name='app', client_type='confidential', authorization_grant_type='password', organization=organization)
+    urls = [
+        (reverse('api:o_auth2_token_list', kwargs={'pk': org_member.pk}), {'scope': 'read'}),
+        (reverse('api:user_authorized_token_list', kwargs={'pk': org_member.pk}), {'scope': 'read', 'application': app.pk}),
+    ]
+    for url, data in urls:
+        post(url, data, org_admin, expect=403)
+        response = post(url, data, admin, expect=201)
+        assert AccessToken.objects.get(token=response.data['token']).user == admin
+    assert not AccessToken.objects.filter(user=org_member).exists()
+
+
+@pytest.mark.django_db
+def test_personal_token_list_is_the_url_users(oauth_application, post, get, admin, alice, bob, system_auditor):
+    for user in (admin, alice):
+        post(reverse('api:user_personal_token_list', kwargs={'pk': user.pk}), {'scope': 'read'}, user, expect=201)
+    # an application token is not a personal one
+    post(reverse('api:o_auth2_application_token_list', kwargs={'pk': oauth_application.pk}), {'scope': 'read'}, admin, expect=201)
+
+    def owners(owner, requester):
+        response = get(reverse('api:user_personal_token_list', kwargs={'pk': owner.pk}), requester, expect=200)
+        return [t['user'] for t in response.data['results']]
+
+    assert owners(alice, admin) == [alice.pk]
+    assert owners(alice, alice) == [alice.pk]
+    assert owners(alice, system_auditor) == [alice.pk]
+    assert owners(admin, admin) == [admin.pk]
+    # alice can see the admin user, but not the admin's tokens
+    assert owners(admin, alice) == []
+    # bob can't see alice at all
+    get(reverse('api:user_personal_token_list', kwargs={'pk': alice.pk}), bob, expect=403)
+
+
+@pytest.mark.django_db
+def test_personal_token_for_another_user_activity_stream(post, get, admin, alice, settings):
+    settings.ACTIVITY_STREAM_ENABLED = True
+    # the request middleware sets the actor in production; the test client calls the view directly
+    with impersonate(admin):
+        response = post(reverse('api:user_personal_token_list', kwargs={'pk': alice.pk}), {'scope': 'read'}, admin, expect=201)
+        own = post(reverse('api:user_personal_token_list', kwargs={'pk': admin.pk}), {'scope': 'read'}, admin, expect=201)
+
+    entry = ActivityStream.objects.get(operation='create', o_auth2_access_token__token=response.data['token'])
+    assert entry.actor == admin
+    assert json.loads(entry.changes)['user'] == 'alice ({})'.format(alice.pk)
+    assert list(entry.user.all()) == [alice]
+    alice_stream = get(reverse('api:user_activity_stream_list', kwargs={'pk': alice.pk}), admin, expect=200)
+    assert entry.pk in [e['id'] for e in alice_stream.data['results']]
+
+    # a token the actor issues for themselves records nothing extra
+    own_entry = ActivityStream.objects.get(operation='create', o_auth2_access_token__token=own.data['token'])
+    assert own_entry.actor == admin
+    assert 'user' not in json.loads(own_entry.changes)
+    assert not own_entry.user.exists()
diff --git a/docs/auth/oauth.md b/docs/auth/oauth.md
index 706a7bb68..a6e1c20c1 100644
--- a/docs/auth/oauth.md
+++ b/docs/auth/oauth.md
@@ -188,8 +188,13 @@ token can be obtained by doing a curl to the `/api/o/token/` endpoint. For examp
 ```
 curl -ku <user>:<password> -H "Content-Type: application/json" -X POST \
 -d '{"description":"Tower CLI", "application":null, "scope":"write"}' \
-https://<awx>/api/v2/users/1/personal_tokens/ | python -m json.tool
+https://<awx>/api/v2/users/<user_id>/personal_tokens/ | python -m json.tool
 ```
+
+`<user_id>` is the token's owner. Users create tokens for themselves; a System Administrator may also
+create one for another user, such as a service account that has no password. The activity stream
+entry for such a token names both the administrator (`actor`) and the owner (`changes.user`).
+
 Here is an example of using that PAT to access an API endpoint using `curl`:
 ```
 curl -H "Authorization: Bearer kqHqxfpHGRRBXLNCOXxT5Zt3tpJogn" http://<awx>/api/v2/credentials/
diff --git a/docs/docsite/rst/administration/oauth2_token_auth.rst b/docs/docsite/rst/administration/oauth2_token_auth.rst
index 6c9b0b1f1..969d155f0 100644
--- a/docs/docsite/rst/administration/oauth2_token_auth.rst
+++ b/docs/docsite/rst/administration/oauth2_token_auth.rst
@@ -154,6 +154,8 @@ The easiest and most common way to obtain an OAuth 2 token is to create a person
 
 You could also pipe the JSON output through ``jq``, if installed.
 
+The token belongs to the user whose ID is in the URL. Users can create tokens only for themselves; a System Administrator can also create one for another user, for example a service account created without a password, which cannot log in to create its own. Any other request for someone else's ID is refused with ``403``. ``GET`` on the same endpoint lists that user's personal tokens, as far as the requester is allowed to see them.
+
 
 Following is an example of using the personal token to access an API endpoint using curl: