Cheryl,
You can develop script or using mass maintenance SU10 add the Role1 to every user. (You can have the role2 users in the script for adding role2)
And if needed, then if the "special people" number is less - add the role2 and remove role1.
Regarding default of role1 to each user going forward - unfortunately, in SAP it is not possible like in 'default permissions' like in SAP Portal.
Hope this helps.
Regards,
Daya