convert the remainder of users module to routes

converts the module, plus several other fixes...

| Q             | A
| ------------- | ---
| Bug fix?      | no
| New feature?  | no
| BC breaks?    | no
| Deprecations? | no
| Tests pass?   | yes
| Fixed tickets | -
| Refs tickets  | #1788
| License       | MIT
| Doc PR        | -

refs #1788 
Maybe add a comment to explain that the 9999 is used to append to the last array element or something.