Minecraft OP rights 1-4 problem?

Hi. I have a Minecraft Bukkit Paper 1.14 server without a Permiss system.

I want to give someone OP Level 2 which doesn't work. If I set Level 2, the player I gave it to can use Op Level 4 rights. Even if I give 1-3, the player has the same rights as the 4. Why is that?

This is because the 1-3 levels are only for the basic commands from MC. So if you have a plugin - you can use all commands with op 1-4.

In addition, the 1-4 permissions are pretty outdated.

Or do all normal commands like / tp or / gamemode 3 with OP stage 1 go? Then I don't know