Administrators only, as you can do almost anything with it.
It does, of course, end up with users "using" it - they're the ones who trigger workflow post-functions, click the web-fragments, etc. But they can not (and should not) configure it.
ScriptRunner for JIRA only allows JIRA Administrators to write scripts and configure them. So they control what users can and can't do.
To users most of the functionality is transparent and you can only use what the admins have configured.
It is intended that admins use ScriptRunner sensibly so such permissions issues do not arise.
If there is a more specific question you'd like further clarification on feel free to ask.
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