The crontab file is not a shell script. Therefore, you do not need #!/bin/bashto start the file. Plus, the places are suspicious. Try something like this:
SHELL=/bin/bash
MAILTO=administrator@localhost
BASH_ENV=/home/administrator/.bash_profile
* * * * * /home/administrator/test1/script/rails runner /home/administrator/test1/app/create_flag.rb >> /home/administrator/test1/test.log 2>&1'
, , crontab -e administrator crontab.
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