When user management is delegated to JIRA, and the ANYONE group assigned global USE permissions, all registered users in JIRA and Confluence are counted as licensed users.

Hence under a jira+confluence shared user base scenario, all users in the system are counted whether they are using Confluence or not. This doesn't give the customer much control over their licenses. They are faced with a dilemma where they want to enable anonymous access but do not want to blow out their licenses.