As a client, I want to setup user administration feature without enabling Budget Management.
In this configuration, the only role that shows on the User Administration page is "Administrator", and that means that customer admins can only create other admin users. It should also show at least the role "buyer3", so Admins could create buyers, and manage buyers.
Activating the Budget management feature does bring all roles to that page, but there's no interest in that feature from the client.