There are two admin levels possible. The one includes system functionality like backup/restore the other one lacks this ability, but both can add users. :)
On the other hand this user is also able to remove/disable accounts. :/
Possible way around this is to enable new uses to create there own account for the first login. As soon as the user is in Jiras internal DB anybody who can administer a project can add this new user to a role within your project.
One other soution is to shift the user managenent outside Jira. LDAP e.g. then adding a user to an external group (that is assigned to a role in your project) will grant the new user access to your project.
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