I think you'll that for user 3 you'll have to add a line for each county in europe 1). The * means all listed values and the table now only lists spain. Leaving it empty doesn't work as you've noticed. User 1 has ADMIN access so it always gets access to all the data.
1) Or create a new data table in your model that links the users to the regions they should be able to see. Basically doing the same thing, but in a different table
in this case i think User with UserID 5 will have access to Spain ,France and Germany.which means if i have a particular user assigned for each and every country in a particular geography we can have Head of that geography at last mentioning *.