That can not be done. There is only one local user on a domain controller -
the built in administrator account used for Recovery Console and Directory
Services Restore. Beyond that you will have to rely on user rights,
privileged group membership [server operators and such], and maybe Group
Policy [software installation] to give a user more powers on a domain
controller without actually making them a domain admin. If you want a non
domain admin to create and manage users/groups/Group Policy, that can be
done via user delegation which give a users additional permissions to an
Active Directory object or container. -- Steve