added more controllers and scaffolds

just added the users controller - this will allow an admin level person
to perform CRUD operations on the user model

also added comments and comment types - these will be linked and allow
the admins to make notes about their employees.
made a few changes

made a few changes - will now look at creating mass user accounts
without sign_up.

this is just part of the crud work that has to be done so that
department admins can add and remove their own users.