Hi Alex
Confluence counts all users with 'can use' global permission but ignore those deactivated user which means Confluence will count 200 active users which belong to the same license (see documentation) You could deactivate/disable those users from the development instance in order to reduce the license count.
Alternatively, you may use Developer License for your development instance in case you need to keep those users. (see article on How to get Confluence Developer License)
Cheers,
Samuel
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