feat(api): admin-initiated user creation via POST /admin/users (0.43.0)

Pairs with the ALLOW_SELF_REGISTER toggle from 0.42.0: admins can mint
accounts regardless of the toggle state, so a closed-membership
deployment still has a working enrollment path. The endpoint accepts
{ username, password, is_admin? } so admins can mint co-admins in one
call (avoiding a separate promote + extra audit row for the common
"invite a co-admin" flow).

Implementation:
- POST /api/v1/admin/users guarded by RequireAdmin
- Reuses validate_username / validate_password from api::auth (made
  pub(crate)) so the admin path can never produce an account self-
  register would reject and vice versa
- repo::user::admin_create_user wraps INSERT + admin_audit insert in
  a single tx — same "audit reflects what committed" semantics as the
  existing admin_safe_* fns
- Audit row: action="create_user", payload={username, is_admin}

Frontend:
- createAdminUser() in lib/api/admin.ts
- /admin/users grows a collapsible "Create user" form above the table
  (username, password, "Make admin" checkbox). Errors surface inline;
  the list reloads on success.

Backend tests: 7 new, including the headline
`create_user_works_even_when_self_register_disabled` that pins the
admin-create path is NOT gated by the public toggle.

backend/src/repo/user.rs

@@ -291,6 +291,54 @@ pub async fn admin_safe_delete(
     Ok(())
 }
 
+/// Admin-initiated user creation. Wraps the INSERT + audit row in a
+/// single transaction so a rolled-back create never leaves an orphan
+/// audit entry. Caller (HTTP handler) is responsible for validating
+/// `username`/`password` and hashing — this fn assumes both are
+/// already vetted by the same `validate_*` rules used by self-
+/// registration.
+pub async fn admin_create_user(
+    pool: &PgPool,
+    actor_id: Uuid,
+    username: &str,
+    password_hash: &str,
+    is_admin: bool,
+) -> AppResult<User> {
+    let mut tx = pool.begin().await?;
+    let user: User = match sqlx::query_as::<_, User>(
+        "INSERT INTO users (username, password_hash, is_admin) VALUES ($1, $2, $3) \
+         RETURNING id, username, password_hash, created_at, is_admin",
+    )
+    .bind(username)
+    .bind(password_hash)
+    .bind(is_admin)
+    .fetch_one(&mut *tx)
+    .await
+    {
+        Ok(u) => u,
+        Err(sqlx::Error::Database(ref db_err)) if db_err.is_unique_violation() => {
+            return Err(AppError::Conflict("username is already taken".into()));
+        }
+        Err(e) => return Err(AppError::Database(e)),
+    };
+
+    crate::repo::admin_audit::insert(
+        &mut *tx,
+        actor_id,
+        "create_user",
+        "user",
+        Some(user.id),
+        serde_json::json!({
+            "username": user.username,
+            "is_admin": user.is_admin,
+        }),
+    )
+    .await?;
+
+    tx.commit().await?;
+    Ok(user)
+}
+
 pub async fn bootstrap_admin(
     pool: &PgPool,
     username: &str,