Creative Cloud for enterprise is licensed per named user, usually on an enterprise term agreement that fixes the seat count for the full term. Adobe sets that count at signing and the structure makes it far easier to add seats than to remove them.
Shared device and feature restricted licensing exist for labs and occasional users, but they are rarely offered up front because a full named user seat costs more. Most estates default to the all apps named user plan whether the user needs one app or twenty.
The renewal is where the overbuy becomes permanent. An annual uplift applied to an inflated seat count compounds every cycle, and unless the baseline is reset first you are negotiating up from a number that was already too high.
