I must be missing something really obvious ...
I just set up a new installation of CWIS. I see how I can edit users (the single admin user, that is). I see how I can delete users (again, just me). I see how I can import or export users.
But how do I create a new user - say, a second admin user?
Do I really have to log out, go to the front end, register as a new user, log back out, log in as admin, and then grant privileges to the new user? You can't create new users in the user admin area?
You're right -- there's no way in the admin area to create new users, mostly because user signups are one of the most-heavily-customized portions of CWIS, with many sites adding new steps or requirements.
With moving the user information to a full metadata schema in 3.0 this will presumably become less necessary, so we'll try to get an administrative interface for adding users into the next pre-3.0 release. (Right now there is the new User Creator plugin, which allows you to add users on the fly when editing resource records, but that's a little obtuse if you're just trying to add another account.)