Ability to provide user the option to apply and remove holds without allowing them to edit the Order

Is there a way in which we can provide the user the ability to apply and Release Holds without allowing them to create, book an Order, create a Quote, Update Order or lines with just the use of assigning Menu and Hold setup?

I did assign the responsbility the ability to apply and remove holds but if the user has just inquiry access they will not be able to apply or remove hold. Has anyone encountered a situation or requirement like this and what have you used as a work around.

Betty