In the permission scheme, use the group "anyone" in the "browse" permission - people will then not be required to log in to see the issues in the project, and that sort of access requires no licence. The users are anonymous.
Two recommendations though
You can allow anonymous access in your instance, but in this case, if your instance is open in the internet and not restricted to your network, anyone will be able to view the data.
https://confluence.atlassian.com/display/JIRACLOUD/Enabling+anonymous+access
If you want to have restrict access, with username and password, then you will need a license of each user, even if they do not add new data to the instance.
Cheers!
Teilor
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Actually, if the instance in inside a intranet firewall only users inside the firewall will be able to access it. But if it is available to the outside Teilor is correct, the whole world will be able to see it.
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