plug-ins work for all the users. There may be some that can be controlled, but I haven't run across them. Look at the Xray documentation and it will say if it can be limited.
As @Joe Pitt mentioned apps works for all users unless the app has user control which very few of them do. Xray does not have user control, you can only control which projects should have access to it.
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As already mentioned, licensing (and usage) is based on the number of your Jira instance.
Some companies create specific instances just for testing purposes even thought it may not be the recommended approach for sharing information across team members.
Atlassian may change this on the mid-term, but right now it works this way for all Jira apps.
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