Hi @Chiara Spadavecchia ,
Access to product means consuming a license in order to use the product.
Product Administration provides the user with permissions to configure the product, but it doesn't provide access to the product nor consume a license, unless you also add that user to a group that provides with Access to product.
Hope it helps.
I think the only thing that can be configured without product access to Jira is User Management (site-admins group by default), for managing users and groups without actually consuming a license.
So you are right: most of the times product access needs to be granted to administrators so they can perform the typical Jira Administrator tasks.
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