You need root to add users, there are ways to do this, but I just wouldn't.
You could make apache run as root and then just call system("adduser...");, but that is just a stupid thing to do.
Or you could look into sudo.
Or just put it into a batch job, and have a cron job pick it up and do it later.
If you are doing this for mail users, perhaps look into qmail + Vpopmail. With Qmail, you can have your user database stored in mysql and do not require a valid system user.
Why do you need to create a system user, perhaps there is a better work around.