User permissions for change sets
Key Takeaway
Uploading and deploying use different user permissions: "Create and Upload Change Sets" to upload an outbound change set, and both "Deploy Change Sets" and "Modify Metadata Through Metadata API Functions" to deploy an inbound one.
Change sets move customizations from one Salesforce org to a related org. Separate user permissions control three jobs: creating and uploading an outbound change set, deploying an inbound change set, and editing the deployment connections between orgs.
What a change set carries
A change set carries only changes you can make through the Setup menu, never data.
For example, you can use a change set to move a new custom object built in a sandbox to the production org, but you can't use one to upload contact records.