As default even administrators need to associate subscribers with their account to be able to use them when creating reports, but there is a function that allows administrators to see all the subscribers and groups in the system without having to associate them with their account.
By enabling the View all option on the user administration page or in the My account page the administrators can view and create reports with all subscribers all the time. This function can be toggled on and off so that the administrators can have a set of subscribers associated as default but when needed enable the show all function to get access to the complete list.
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