Provide access among the users
I don't follow exactly what you're asking, but if you want to give lower level users the ability to assign roles without needing the 'administer permissions' permission or other high level permissions, you can add the module RoleAssign.


  RoleAssign specifically allows site administrators to further delegate
  the task of managing user's roles while withholding the Administer
  permissions permission.
  
  RoleAssign introduces a new permission called Assign roles. Users with
  this permission are able to assign selected roles to still other
  users. Only users with the Administer permissions permission may
  select which roles are available for assignment through this module.
  
  RoleAssign is ideal for smaller sites with a system administrator and
  one assistant administrator role that should be reasonably restricted
  in what it allows. For larger sites with multiple levels of
  administrators or whenever you need finer-grained control over which
  role can assign which other role, check out Role Delegation.