JIRA works on the 'grant access' model. Many early JIRA users grant the jira-user group access to projects, which allows everyone access. The first thing is to remove that access. I suggest using the project roles to allow access. That way the individual project admins can add people to the project. If you use groups the JIRA admin will have to move users into the groups. It will take some work to convert, but be much easier to administer in the long run. You'll also be able to limit transitions to particular roles.
If you spend enough time as a Jira admin - whether you are managing a single, mid-sized instance, a large enterprise one or juggling multiple instances at once - you will eventually find yourself in ...
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