Is it possible to encrypt a single pdf document with multiple user passwords?

Example scenario:

A website allows applicants to complete an insurance application then emails a pdf version of the application back to the applicant. The pdf document is password protected with a user-supplied password.

All pdf applications also need to be e-mailed to the agent who will receive commission for the application. It is preferable that this document is password protected with an agent-supplied password.

We're considering cc'ing the agent on the applicant's email which would eliminate the need to send a separate email to the agent. If we can encrypt a pdf with two passwords, this will work.

Note: Using an owner password appears to allow the owner to modify fillable form fields which we don't want to happen.