I understand that users who make requests to the service desk do not count towards your agent licenses. Is that the same for an IT staff member, who does not use Jira Service Desk as an agent, but might be someone who submits change requests?
If IT staff members create requests from the portal, then they do not have to have an agent license, they should be marked as Customers. If IT staff members want to create issues from Jira then they also do not need to be agents but they would need a license to connect to Jira (Jira software license for example). Also you would need to grant the Create issue permission to the IT staff group in the Service Desk project.
What form does the change request take? If it is an actual document they could fill it in outside of JSD and attach to the issue when creating. Alternatively you might find that recreating the change request via custom fields in JSD and exposing to the portal would meet the need.
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