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You can hide Administration tab for normal users using EL's. By default users will get this tab when they login to identity console even though admin role is not assigned to them. But if you do any operation on any users, request will be raised accordingly.
Check this link to configure EL's http://docs.oracle.com/cd/E27559_01/dev.1112/e27150/uicust.htm#autoId18
Check this article about steps to hide Admin tab for users with ALL USERS role.