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User creation service for creating users (admins only)

What does this MR do?

Implements a new service for creating users in administration Web UI and users api endpoint

Are there points in the code the reviewer needs to double check?

The difference in behavior related to confirm parameter as described in the issue comment.

Why was this MR needed?

To avoid duplicate code and have a single point of reference for user creation for both Web UI and API.

Does this MR meet the acceptance criteria?

What are the relevant issue numbers?

#8957

Closes #27878 (closed)

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