fix scoping for account user api call skip confirmation
fix scoping for account user api call skip confirmation

refs PS-1459
test plan:
  1. create a user with the user create
     api make sure to give that user a
     communication channel and use the
     skip_confirmation flag. This
     should work for a site
     admin token as well as account admin
     token
  2. create a new communication channel
     for a user using the skip_confirmation
     flag. This should work for site admin
     and account admin.
  3. In both cases the communication
     channel should be created and the
     workflow_state should be 'active'

Change-Id: Ie2ca3e91dc80e4e7e5dd00a0c86fb57e7b169a6c
Reviewed-on: https://gerrit.instructure.com/34040
Tested-by: Jenkins <d95b56ce41a2e1ac4cecdd398defd7414407cc08@instructure.com>
Reviewed-by: Joel Hough <4816dabf8db1bc6cac35b3a24cab2ff844b5b0c7@instructure.com>
QA-Review: August Thornton <9adc7a1161ddf32ff608de792a7e50179545f026@instructure.com>
Product-Review: Matt Fairbourn <5f353e1c97bb9cc046b9db20beca0b9392f6f1b2@instructure.com>

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