Currently we cannot assign an issue to users or only some users appear in the drop down. At this point with less than 10 users we want all current users to be able to be "assigned to" no matter which project.
It is driven by the Assignable User permission. Make sure the permission schemes have all the users granted that permission either via groups or via individual users.
http://confluence.atlassian.com/display/JIRA/Managing+Project+Permissions
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