Yes, you can grant any user access to Administration / Access Rights so they can setup users (without being a super user).
For your information, in Odoo 12 & 13 the "admin" account isn't actually a "superuser". This can be confusing, because in earlier versions, the "admin" account is automatically a "superuser", and also because this account is a member of all application security groups by default, and so can do almost anything.
If you do need to become a "superuser" this can be enabled temporarily:
In Developer mode, an admin user (in the Admin / Settings group) can click on the “Become Superuser” option in the developer menu.
In Developer mode, use “Login as superuser” in the login screen (rather than "Login").
Or there’s a shortcut: http://<your-domain>/web/become