It sounds like you have replication issues and ACL issues. You shouldn't let servers other than the administration server have the Create User role. All users should be registered on the admin server. Also, it sounds like you have servers replicating back to your admin server on a very irregular basis, such as every four months or more. This cannot continue. Finally, make sure no one with user creation capabilities has an old local replica of the directory.
Dig Deeper on Domino Resources - Part 7
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