Create User Levels for Each Moduel
Each department should have their own security to access the System Utilities. The Tax office should not have access to Finance or any other department and the Finance office should not have access to the Tax System Utilities etc. Each department head should have access to their department ONLY! And the level to send messages should be at a 2 my clerks should be able to send a message to me and not have it restricted.
A level 2 handles this if the user is limited in the other modules. The users are being given too high of security.