I think I would be looking at levels of knowledge in terms of how well people (should) know Jira.
A standard level user should be able to find their way around, be comfortable with the basics of issue tracking, understand what fields are for and how the status comes from the workflow. Within that, there's a bit more for people who are using Scrum or Kanban to understand, but that knowledge should come from their knowledge of the processes, not Jira.
The next layer up is local administrators who can admin various parts of the project - project admins, service desk Agents, and board admins for Scrum and Kanban.
The third layer is your Jira Administrators who administrate the application and will need a thorough understanding of how to do that
Finally, for Server/DC installs, there is a Jira system administrator.
On Cloud, Atlassian are the system admins, but there is also the Site admin option, which is there for administration over all of the applications within the estate - while site admins have some access that Jira admins have, they do not have to be Jira admins - they're looking after your site - mostly users, access, billing etc.
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