I would like to create a permission scheme that allows users to create projects (as well as administer them) but not be able to do administer JIRA (e.g. plugins, system, users) but I can't figure out how to set this up. I created a scheme called "Project Administrator" that granted all the available permissions to it, but users with that scheme cannot create a project.
Is there a way to grant this permission but not allow them to administer any of the other JIRA settings?
Nope, the permissions are not that granular. There are four levels - System, Application, (huge gap), project admin, normal user.
To create a project, you must be system or application level, and that gives you the rights to plugins, fields, schemes and the rest.
See https://jira.atlassian.com/browse/JRA-3156 to see the work being done on this.
Like Nic said - stock JIRA is not able to do this - however https://marketplace.atlassian.com/plugins/com.wittified.jira.project-creator will allow you to delegate the creation permissions to non-admins. (Note: I am one of the developers behind it).
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