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passwd prompts for new password only once when <enter> is pressed

When I just hit "enter" when passwd prompts for new password, I should get re-prompted 3 times. Instead, it reprompts once for FC 6.
How to change passwd's behavior so that it will re-prompt 3 times?

# adduser admin
# passwd admin
Changing password for user admin.
New UNIX password:
BAD PASSWORD: it is WAY too short
Retype new UNIX password:
No password supplied
No password supplied
No password supplied
passwd: Authentication token manipulation error

# uname -a
Linux tulip 2.6.18-1.2798.fc6 #1 SMP Mon Oct 16 14:54:20 EDT 2006 i686 i686 i386 GNU/Linux

what's the point of prompting three times?

and why aren't you putting a password on that account?