Yes you do. There is no other way, currently, to grant access to templates without making them an admin. (I know this is on Karbon’s radar).
Work around to build templates, is to create a work item, collaborate on it as you build it, and then the admin can save it as a template.
We do what @Terri Warren does as well - although we even do that among Admin users! You can’t comment or have discussions on a template, so if we’re reviewing/updating a template, we’ll create a dummy work item from the template and then discuss/comment/make changes to that work item, and once we’re happy with it, either turn it into a new template, or roll the changes into the existing template.
Here’s a feature request Terri created related to this - @Cynthia Vincze please add your vote and maybe a comment if you haven’t already!