A human end user who submits a print job to an IPP Printer. This person may or may not be within the same security domain as the Printer. This person may or may not be geographically near the printer. A human user who established policy for and configures the print system 2.3 Operator A human user who carries out the policy established by the Administrator and controls the day to day running of the print system. Of course, your viewpoint on this question probably depends on what kind of environment you envision when you think of IPP deployments.
Administrator is likely to be separate.
If the Operator is a user, then it's appropriate to put Operator functions into the application protocol. If the Operator is an Administrator, it's appropriate to put the Operator functions into a management protocol.