Keystone does not return service list if catalog is base on template file

Issue

In the past we've been using keystone catalog in the database. But we want to switch and use static template file.
So we have a default template file plus we change keystone config as follow:

[catalog]
# dynamic, sql-based backend (supports API/CLI-based management commands)
# driver = keystone.catalog.backends.sql.Catalog
# static, file-based backend (does *NOT* support any management commands)
driver = keystone.catalog.backends.templated.TemplatedCatalog
template_file = /etc/keystone/default_catalog.templates

with this config the keystone works fine, we can auth users and we have a correct catalog defined in template but this is not right:

1. keystone service-list - return nothing, it does not give any error

2. when I connect using python this is what I see:

>>> cm.services.list()
[]