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Split licensing models requires approval from Google, and has
requirements in terms of license counts. You would need to work with a
reseller or with your account manager. Though for transparency, for 10
users it is note likely to be granted.
To add to this, you can create whichever users you want, but you will
need to pay for a workspace license if those users need to use workspace
services. It's one of those cost of doing business things
We do have a policy, its explicitly against our acceptable use policy.
See bullet point
9https://workspace.google.com/terms/use_policy/#:~:text=%E2%80%A2%20to%20grant%20multiple%20individuals%20access%20to%20an%20individual%20End%20User%20Account%20o...
