Http Local Rate Limit throttled the traffic without exceeding the expected qps

*Description*:
I am using http local rate limit in a single pod in aws-us-west-2. Below is my settings at the listener:
```
{
"name": "envoy.filters.http.local_ratelimit",
"typed_config": {
"@type": "type.googleapis.com/envoy.extensions.filters.http.local_ratelimit.v3.LocalRateLimit",
"stat_prefix": "http_local_ratelimit",
"token_bucket": {
"max_tokens": 15000,
"tokens_per_fill": 15000,
"fill_interval": "1s"
},
"filter_enabled": {
"default_value": {
"numerator": 100
},
"runtime_key": "http_local_ratelimit.filter_enabled.default_value.numerator"
},
"filter_enforced": {
"default_value": {
"numerator": 100
},
"runtime_key": "http_local_ratelimit.filter_enforced.default_value.numerator"
}
}
}
```
I expect that the http local rate limit wouldn't be triggered before reaching 15000 qps. However, the requests started to be throttled when the qps reached 3000.
I am using Envoy 1.25.9

Did I have any misconfigurations?