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So your users will have access to the backend admin where they can see the formidable settings and can create forms?
I'm probably going to use FrontEnd Admin for users to create new forms...but that is not required.
The reason I ask, is how did you plan on them creating forms? You indicated the number of forms being limited, not the number of entries submitted right?
Here's a link to the FrontEnd Admin article explaining how to allow them to create new forms. https://wpfrontendadmin.com/formidable-forms-create-frontend-platform/
And yes, Create Forms. Not submit entries to existing forms.