pillar highstate issue

top.sls

root@salt:/srv/pillar# cat top.sls
base:
   '*':
      - admins
      - users

#
# Error message
#
root@salt:~# salt 'ns1*' state.highstate
ns1.dev.irisbylowes.com:
----------
          ID: states
    Function: no.None
      Result: False
     Comment: No Top file or external nodes data matches found
     Started:
    Duration:
     Changes:

Summary
------------
Succeeded: 0
Failed:    1
------------
Total states run:     1

#
# tree structure
#
/srv/
├── pillar
│   ├── admins.sls
│   ├── top.sls
│   └── users.sls
└── salt
    └── admins.sls

#
# Created /srv/salt/top.sls
#
root@salt:/srv# salt 'ns1*' state.highstate
ns1.dev.irisbylowes.com:
----------
          ID: states
    Function: no.None
      Result: False
     Comment: No Top file or external nodes data matches found
     Started:
    Duration:
     Changes:

Summary
------------
Succeeded: 0
Failed:    1
------------
Total states run:     1
root@salt:/srv# cat salt/top.sls
base:
   '*':

#
# Users.sls and Admins.sls are identical for the most part, there are extra settings in the Admins.sls file
#
root@salt:/srv# cat pillar/users.sls
users:
   tuser1:
      fullname: Test E Tester
      state: present
      groups:
         - dev
      pub_ssh_keys:
         - ssh-rsa 

#
# Admins.sls
#
admins:
   jpatton:
      fullname: Jeffrey Patton
      state: present
      groups:
         - adm
         - root
      pub_ssh_keys:
         - ssh-rsa 

users.sls

{% for username, details in pillar.get('users', {}).items() %}
{{ username }}:
   user:
      - {{ user.state }}: