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These site settings are very hard to explain and only applicable for very specific Discourse setups. If an admin "enables staged users" which is used in support scenarios then all staff can send "messages" directly to an "email". The setting allows you to extend this to TL4 or any trust level. Actual use case would be a support type setup with restricted staff. It is quite rare so hiding this for now and re-evaluate keeping the setting in 2019