I have tried many sets of permissions to create a role that allows creation of users. I gave all permissions to a user, except "Change site configuration" and "Allowed to do everything". Even this role is not able to create users.
Moodle 1.9.4+
As admin I created a role with the moodle/user:create capability, and assigned that role to another user globally.
Then I logged in as that other user, and was able to see the option to Add a new user. I did that and it worked, apart from ending up with an ugly error after the operation was complete.
(To get rid of that error, give the role moodle/user:update too.)
As admin I created a role with the moodle/user:create capability, and assigned that role to another user globally.
Then I logged in as that other user, and was able to see the option to Add a new user. I did that and it worked, apart from ending up with an ugly error after the operation was complete.
(To get rid of that error, give the role moodle/user:update too.)