Hello @netmanage,
Thanks for reaching out here in the Docusign Community—great to have you here!
Regardless of whether the admin just manages the billing without sending envelopes, they still need a license/seat assigned to their user account. Anyone added as a user on the Docusign account -- whether for sending or administrative purposes-- counts as a licensed user, consuming one of the licenses/seats on the subscription.
I hope this information helps. If anything’s unclear, let us know—we’ll get it sorted out.
Best Regards,
Jenny | Docusign Community Moderator
If this cleared things up, you can mark it as "Best Answer" so others can find it, too.