Welcome to the community.
For better or worse, Atlassian Apps can only charge per user and must match the Atlassian host product license. To quote from the documentation:
'Paid via Atlassian' app licenses have to exactly match the Atlassian host product license. For example, if a customer has a Confluence license for 500 users, they need to purchase the same license for apps.
On the plus side, it does keep the pricing simple. However, to customers it might seem like they are paying for a 100 user license when only 10 users will actively use the App.
However, what you will find is that the prices have been adjusted to accomodate for that.
Take Power Scripts for example:
Arguably the app is worth $15.50/user considering the time it saves those individuals. And of course, as the number of users scales up, the per user price generally comes down.
To summarise. Yes, you need to cover all users, even for admin level tools. But the per-user prices of these tools have been adjusted lower to account for that.
Cheers,
Jens
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