The short answer is not user registerable module if you want to do
that.
But, you always can create an admin's only controller that let them
create users. There will be two countermeasures then:
1) The password. Users set their own password when they sign up, and
you probably don't want the admin do that. Solution: set a constant
default password to all users or create one based on the created_at
time of the user (so you don't event have to modify devise's users).
Then create another action on your new controller that let's an user
confirm his account with this default password and set their real
password. This leads us to problem number 2
2) Users can register them (setting their passwords) or they can be
created by an admin. The confirm action is different for each
registering way, so we must send to their email two different
"confirmation required" emails that point to two different
confirmation actions: one the default one (no password setting) and
the oene you've created to let them set their real password.
In a dirty way you can chech on your confirmation_instructions
template if an admin is logged in when registering or not and send the
appropiate email. But i haven't a correct solution for that, I only
hang that checking on Tread.current, becasue ActionMailer doesn't let
you use ActionController's helpers to do that.
Hope it helps