The hyphen between non and administrative is more interesting. The N-dash attaches the prefix to the whole of the hyphen ated compo und adjective following. Ultimately, you will find that the only permanent way to solve a semantic problem is to apply a semantic solution. In short, you need to designate the categories of users more specifically. Addressing the issue of audience now will give your whole manual a better focus.
Administrative user is a noun.
I would not have advised anyone to hyphenate it. The compound in question ought to have been an adjective. The source is The Chicago Manual of Style , 14th ed. The reason I am asking is that a colleague and I are addressing the N-dash issue at work, where we are preparing an internal style guide. We are looking for a couple good examples of using the N-dash to combine two double compounds, versus using a comma to separate two double compounds.