User not administrator can't change author "Access denied"

Scenario:
I need to change user author using an user that not have administrator role.
I have enabled this permission: "Execute the Change the author of content action on Content."

This is the result:
Action processing results: Access denied (1).

If I set the permission "Administer users" to the role then the user can change users, but it is not an expected behavior, By the way without this permission the user can change author editing the node.