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What are the minimum requirements to legitimately allow multiple non-admin users to RDP into and use a Windows machine?

Last Modified: 2019-11-20
Currently a base install of Windows Server 2019 (on AWS) allows two admin users to connect to it via RDP to administer the machine.

What is the minimum (in terms of machines and MS software) required to legitimately enable 3 or more non-admin users to RDP into and run applications on the machine?  I'm guessing it needs a minimum of a licence server with CALs, and the licence server probably needs to be on a domain.

It would be really good if I could avoid the hassle of setting up a domain controller etc. The machine doesn't need to use the bloat of RDS unless its required by the licensing mechanism.
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