The administrator creates tasks and subtasks. It is necessary to make so that users could see both tasks and subtasks, and create only subtasks. It must prevent users from creating tasks and permit to create subtask.
You will need coding to do this, as "create issue" permission really is for create in a project. It's not limited by issue type.
How would a system know that a user intends to create a task until the user actually does?
Monitoring others is easy in JIRA though, you can set up notifications to send emails when issues are created, and simply ask "who created issues" and it'll tell you when it was done and give you any or all of the rest of the data on the issue.
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