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Global Admin / Dynamics 365 Admin can manage users but has no permission to insert / modify / delete Approval Users. This is part of the User Management tasks. Please consider adding this table to Global Admin permission rights.
Category: General
STATUS DETAILS
Declined
Ideas Administrator

Thank you for your feedback. We are not considering the suggestion at this time due to the following reason: 
Global Admin is granted the right to manage users access to data and business processes while the Workflow approval users relates to the specific business rules that business manager wants to implement. Therefore, Global Admin can setup which users do have access to the tables that contain the approval requests but not setup who and under which conditions should trigger/approve a request. The workflow approval user setup is indeed a business driven operation and therefore requires a licensed user. 
 

Sincerely,
Tomás Navarro
PM, Microsoft