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.)
Roles and permissions
How to create a role that allows creation of users?
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