How to make a user an administrator without using all kinds of licenses?

[Petr AST]

Hi there! 
Faced with a very strange question. There is a user, uses only ServiceDesk project, administers it. By default, jira also adds other licenses (Software and Confluence). Changing licenses is possible only in the Basic role. But then the user cannot administer the Service Desk project.

How to make it so that it only uses the ServiceDesk license, for example, and can administer the project?

Is this a bug or a strange feature of the jira?