user permissions

I am the wordpress manager and have a collaegue that will be handling the forms on the site. I only want him to be able to create forms and view sumissions. I use the “User Role Editor” to filter his capabilities. For downloading pdf’s we get an error “you have no permissions to download a pdf”. Looking at the code it seems he need ‘manage_options’ capability, but that adds other options I don’t want him to be able to use. Is it possible to make download pdf allowable via URE?