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To delegate this feature, you have just grant powered users with one of = Create User permissions.
As JIRA Administrator, you are allowed to delegate the = Create User operation to powered users, by using some cu= stom Permission. Also, powered users will be allowed to create new users (O= nly Create ...).
As soon as you are granted to create users through the custom Create User P= ermissions, you will have access to the Create User button in User Role= management section ...