Is there a way to only give administrative access to create users and groups?
You have this option - Trusted users…
I think the option @Jack Brickey specified will not limit the user's admin access to only adding users and groups based on "update product settings, add new products".
According to this page only Site Admins can manage user groups
https://support.atlassian.com/jira-cloud-administration/docs/manage-global-permissions/
That is correct. There isn’t a means of achieving the exact goal. The Trusted user is close but not exact.
@Trudy P Claspill is correct, we're looking to limit access to only manage users/groups, but not have any other access to any administrative powers.
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