Okay, I will try and explain it in more depth now.
Alrighty then. Say I had a character that was doing a mission ONLY with his character (or with multiple people) and they vs. say... a massive robot bear some how. What the NPC controllers job would be is, make an application for the enemy, and based on it's powers and level of power it is given a strength level. Once the application is made, the NPC controller can use this creature to fight against the main character.
the name pretty much explains itself, NPC controller... they control other NPC's for people. NPC's being characters that are in your story line but you want someone else to RP as them. These NPC's are usually a once in a life time use, otherwise they are just normal characters.
I suggest making a new whole section purely for applications? Splitting it into NPC's, OC's (Original characters) and such.
That is all I can drag out for the moment