User data not running when creating a droplet over the api

I am running the following code through a node js script

axios('https://api.digitalocean.com/v2/droplets', {
  method: 'POST', 
  headers: headers_variable,
  'Content-Type': 'application/json',
  data: {
    "name": "bleh.com",
    "region": "nyc3",
    "size": "s-6vcpu-16gb",
    "image": "45204331",
    "ssh_keys": [
      24240690
    ],
    "backups": false,
    "ipv6": false,
    "user_data": `
#cloud-config

runcmd:
  - touch test.txt
`;,
    "private_networking": null,
    "volumes": null,
    "tags": [
      "web"
    ]
  }
})
.then( res => console.log(res.data))
.catch(err => console.error(err));

Although the droplet is created, the user-data commands never run. How can I fix this?