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The documentation is rather vague on this:
could someone provide a more specific answer?
This is where the new documentation for version 7 seems to be letting Atlassian down, in my opinion.
For version 7, you'd want to add something about the admin access to "applications" (i.e. Service Desk and Software) which is similar to "add ons", but other than that, the 6.4 docs cover the difference properly.
They can't create spaces, that's the job of a Confluence administrator.
They can create Service Desk projects, groups and custom fields.
Basically, they can do everything the system admins can except the exclusions - the list of "can do" is far longer than "can't"