If you want to rely on users to install packages (which is a good idea IMHO) all users (not only superusers) need a reliable tool for installation/management (also without shell-account).
Greg has made significant progress in this area (PEAR 1.4's remote installation capabilities, for example). The pear-dev and pear-core archives might be interesting to you (http://news.php.net/php.pear.dev && http://news.php.net/php.pear.core).
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