Not that this is helpful, but this makes no sense.
groupadd, useradd, mkdir, and chown are vanilla Linux commands. There is no reason why they should fail. Particularly if the same Dockerfile builds with fly deploy.
In general when one has a long concatenated command of this kind, there is value in splitting it into separate lines in the GHA config, or making a helper script, and then running the helper.
Could you post your YAML so we can see the commands in context, Dan?