What is your role in the data life cycle? *
Although simplified, consider any creation of data, even a derived dataset, to be data production if the data may be used by another person...who therefore requires metadata. A user, therefore, is someone who asks a question and can answer the question but does not further distribute actual data used in the question answering. Graphics and maps, to me, do not require metadata beyond legends, titles, captions, scale bars, and maybe a discussion. Production and distribution of maps is considered a data user.