This seems pretty tricky and it depends very much on your needs. You could either alter the WP database on each install or make 1 3rd party database along with a script that registers them on the WP install and sets their permissions. The 2nd solutions seems better for me.
Create a database where you add each user with a row for each WP install where you specify their permissions.
Let’s say you have the following permissions: subscriber, contributor, author, editor, admin. Make a database for each user and set their permission. Make a 3rd party script which registers them to the WP installs and sets their permissions. When you change a permission, query the WP installs and update it there.
You will need mostly the WP Database description and wp_update_user function.
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