I believe ULX/ULib calls "users" guests. Try changing your user group to guest. You also don't need to deny operators commands because they don't have rights to anything by default.
From what I understand, you seem to want your operators to act like admins and want your admins to have rcon (which is basically superadmin). I would suggest just bumping your operators to admins and your admins to superadmins. Your code would be a lot simpler.
"Out"
{
"admin"
{
"deny"
{
"1" "ulx cexec"
"3" "ulx toolallow"
"2" "ulx rcon"
"5" "ulx userallow"
"4" "ulx adduser"
}
}
"guest"
{
"allow"
{
"1" "ulx votekick"
}
}
}
Of course give your current superadmins (not the admins you bumped up) immunity if you fear mutiny. I also am not sure that you need to deny your admins anything. I can't remember what they don't have access to by default. You forgot the opposite of those commands anyways (tooldenyuser, tooldeny, etc). I'm sure a Ulysses team member will respond with who has what by default.