The number 5 that you reference is a recommendation of most of the insurance companies, not a requirement of the NFPA. Some AHJ's might also have a similar requirement but I don't know of any off hand.
The intent is to limit the scope of an impairment should there be a break in the underground fire water system. The "users" you are referring to are the connections to the underground fire water system...typically fire hydrants and/or sprinkler systems. A building is not a "user", but each sprinkler system in the building is. Basically, what the insurance companies desire is that there be a sectional control valve after every 5 connections to the underground main.
I hope this helps.