In certain situations you might want to add a user without a license, like an admin. To add a user without a license you need to do the following:

• add to your billing a subscription to a free service
• Turn off Auto-Assign of licenses

Add free service

1. Open Google Admin console
2. click Billing / Buy or Upgrade
3. Purchase something for $0 like Cloud Identity Free

Turn off Auto-Assign of Licensing

1. click Billing / Subscriptions / Google Workspace
2. In the Licensing Settings section you can turn off Auto-Assign