In the HashiCorp stack, where's the appropriate place to add users? I'm in the process of building some custom Linux images using HashiCorp's Packer, which will later be deployed to Azure using HashiCorp's Terraform. The VMs created from these images will need to have a set of users created; in this particular case I'm concerning myself with user accounts for employees that may need to ssh into these VMs.

For this kind of configuration, does it make more sense to add these user accounts to the base image in the Packer script, or to add them when the VM is created via Terraform? It seems to me that handling it in Packer makes more sense, but are there reasons not to do it there?
I am less familiar with what Azure offers, but other cloud providers offer a way to manage users external to the VMs the provide (normally IAM permissions).

I would not bake user into the system but look for an external way to manage them. This allows you to more easily remove users that leave your company or add new users that join.

If Azure doesn't provide a way I would look at setting up Active Directory or LDAP to manage user permissions to hosts. But I would be shocked if you needed to do this.

Note: Don't confuse infrastructure and data. Users are data, not infrastructure. Data (ie adding a user) should be able to change without changing the infrastructure. If you need to remove a user you do not want to rebuild your whole infrastructure.