Possibly. The licence is counted against who can log it. That is determined by the groups named as users and/or admins in global permissions.
If you take 1000 users, and put 200 of them in a group called "JIRA users", then you will consume 200 licences if you use that group in JIRA to say "can log in". The other 800 won't count. (But they can't log in either)
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