I am sorry that the answer you got before was misleading - it was generated by an AI that has no understanding of your question or Atlassian software.
A user counts towards your licence count when their account is given permission to act in a certain role.
In most cases, it's as simple as "can log in and use Jira", for Jira Work Management, and for Jira Software, they also have access to the Software functions.
For Jira service management, the licences are for "Agents" - that is anyone who is an Agent role in at least one JSM project.
The usual reason for licence usage going up when it should not is people leaving their roles, but no-one removes them from their roles in Jira, so their accounts still count against the licence. And, of course, they are usually replaced with someone else, who then consumes another licence.
You need to talk your admins first - are they making leaver's accounts inactive? (Not delete, it is a bad idea, it causes problems. But an inactive account cannot log in, won't be offered as selectable assignees or in other user fields and, most importantly, do not count towards the licence count, even if they are not removed from the roles.
Then talk to your JSM projects owners. Why are they adding more agents to their projects? Are they removing Agents when they no longer need them?
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