Do you have service desk?
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Is it possible that the new user was added by an agent, using the Customers section of Jira Service Desk?
It seems that, even if one does not have admin rights, and outgoing emails from service desk are enabled, agents can create new user accounts. It's also possible they did this by adding someone to Request Participants.
https://jira.atlassian.com/browse/JSDSERVER-5463
https://jira.atlassian.com/browse/JSDSERVER-4088
So is the person you saw having created a new user in the audit log also a service desk agent?
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