Share via

New User RDS CALs are still assigned to an old Windows Server 2019 Key Pack after installing Windows Server 2025 RDS User CALs

Sven 20 Reputation points
2026-06-17T11:16:09.4466667+00:00

Environment

  • RD Licensing Server: Windows Server 2025
  • The licensing server was upgraded in-place from Windows Server 2016 to Windows Server 2025.
  • RD Session Hosts: Windows Server 2019
  • Licensing mode: Per User
  • RD Licensing Server is configured and reachable from all Session Hosts.
  • RD Licensing Diagnoser reports no warnings or errors.

Issue Description

After installing a new Windows Server 2025 RDS User CAL pack, newly issued User CALs are still being assigned to an old Windows Server 2019 key pack that shows 0 installed licenses.

The environment is operational and users can successfully log on to the Session Hosts, but the licensing database appears to continue using the old 2019 key pack for new user assignments.

RD Licensing Diagnoser

The RD Licensing Diagnoser on the Windows Server 2019 Session Hosts reports:

No licensing problems have been identified by Remote Desktop Licensing Diagnoser.

The diagnoser also shows:

  • Licensing mode: Per User
  • License server discovered successfully
  • Windows Server 2025 User RDS CALs available: 897

License Key Packs

Key Pack 3

KeyPackId : 3
ProductVersion : 
Windows Server 2016
TypeAndModel : Per User RDS CAL
KeyPackType : 2
TotalLicenses : 897
IssuedLicenses : 0

Key Pack 6

KeyPackId : 6
ProductVersion : Windows Server 2019
TypeAndModel : Per User RDS CAL
KeyPackType : 8
TotalLicenses : 0
IssuedLicenses : 208
AvailableLicenses : 0

Key Pack 7

KeyPackId : 7
ProductVersion : Windows Server 2025
TypeAndModel : Per User RDS CAL
KeyPackType : 2
TotalLicenses : 897
IssuedLicenses : 0
AvailableLicenses : 897

Observed Behavior

A newly created test user was used to log on to an RDS Session Host after the Windows Server 2025 CAL pack had been installed.

The issued license record shows:

IssueDate : 16-Jun-2026
ExpirationDate : 15-Aug-2026
KeyPackId : 6
sIssuedToUser : <test user>

The same behavior occurs for multiple newly created test users.

New users are therefore still being associated with:

KeyPackId : 6
Windows Server 2019

instead of:

KeyPackId : 7
Windows Server 2025

Actions Already Performed

  • Installed Windows Server 2025 RDS User CAL pack successfully.
  • Rebooted the RD Licensing Server after installation.
  • Created multiple new test users.
  • Verified successful logons to Windows Server 2019 Session Hosts.
  • Verified RD Licensing Diagnoser status.
  • Confirmed that the licensing server is discoverable and operational.

Expected Behavior

Newly issued Per User RDS CALs should be associated with the Windows Server 2025 key pack (KeyPackId 7).

Actual Behavior

Newly issued Per User RDS CALs continue to be associated with the Windows Server 2019 key pack (KeyPackId 6), despite the fact that:

TotalLicenses : 0

for that key pack.

Questions

  1. Is this behavior expected after an in-place upgrade of the RD Licensing Server from Windows Server 2016 to Windows Server 2025?
  2. Is KeyPackId 6 a legacy or migration-related key pack that is expected to continue receiving user assignments?
  3. Are the installed Windows Server 2025 User CALs being used correctly despite new users still being linked to KeyPackId 6?
  4. Is any cleanup, migration, or rebuild of the RD Licensing database recommended in this scenario?

Additional Information

There are currently no operational issues. Users can connect successfully, and the RD Licensing Diagnoser reports no licensing problems. The concern is limited to the licensing database behavior and the assignment of new users to the legacy Windows Server 2019 key pack.

Windows for business | Windows Server | Devices and deployment | Licensing and activation
0 comments

Answer accepted by question author

Harry Phan 23,995 Reputation points Independent Advisor
2026-06-17T13:19:28.15+00:00

This behavior is expected after an in‑place upgrade of the RD Licensing Server. The licensing database retains legacy key packs and continues to associate new Per User CAL assignments with the last active pack, even if its available count is zero. In Per User mode, the license server does not enforce consumption in the same way as Per Device CALs; it simply records usage, which is why the Diagnoser shows no errors and users can still connect. KeyPackId 6 is essentially a legacy record from the Windows Server 2019 CAL installation, and the system is still writing new assignments against it because the database has not been rebuilt. The Windows Server 2025 CALs are valid and recognized, but they are not being reflected in the issued license records due to this database carryover.

If you want clean reporting, the recommended approach is to rebuild the RD Licensing database after the upgrade. This requires stopping the Remote Desktop Licensing service, renaming or deleting %SystemRoot%\System32\LServer\TLSLic.edb, and then re‑installing the Windows Server 2025 CAL pack through the Licensing Manager. That forces the server to drop legacy key packs and begin issuing against the new pack. Microsoft’s official guidance is that Per User CAL tracking is informational only, so the current state does not affect compliance or functionality, but rebuilding ensures the database aligns with the installed CALs.

Was this answer helpful?

1 person found this answer helpful.
0 comments

1 additional answer

Sort by: Most helpful
Most helpful Newest Oldest

  1. AI answer

    2026-06-17T11:16:44.3233333+00:00
    1. This behavior is consistent with how Per User RDS CALs work and with the information available for per-user licensing. In Per User mode, the RD Session Host never blocks connections based on the number of installed user CALs, and the license server’s internal tracking does not affect session access as long as the deployment is correctly configured and Diagnoser reports no issues.
    2. The context does not document specific behavior for individual KeyPackIds (such as KeyPackId 6 vs. 7) or any special “legacy” or “migration” key pack semantics after an in-place upgrade. What is documented is that:
      • RDS CALs are installed and tracked on the license server.
      • For Per User CALs, usage is tracked but can be over-allocated, and the system continues to issue CALs even when the nominal count is exceeded, including from an “Over-Used CAL Pool.”
      • There is no technical enforcement that the number of Per User CALs added to the server matches the number of active users.
      Given this, the fact that new user assignments appear under a specific existing key pack (even one that shows 0 installed licenses) is a tracking detail of the licensing database and not documented as a problem condition.
    3. Yes, the Windows Server 2025 User CALs are being used correctly as long as:
      • The RD Licensing Diagnoser shows the correct licensing mode and a valid license server.
      • Diagnoser reports no licensing problems.
      • The license server version and CAL versions are compatible with the Session Host version.
      The provided compatibility guidance states that:
      • A Windows Server 2025 license server can process RDS 2016, 2019, 2022, and 2025 CALs.
      • Windows Server 2019 Session Hosts are compatible with RDS 2019, 2022, and 2025 CALs.
      This matches the described environment (Windows Server 2025 license server, Windows Server 2019 Session Hosts, 2025 User CALs installed), so the deployment is within supported configuration and the CALs are valid for those hosts.
    4. No cleanup, migration, or rebuild of the RD Licensing database is documented or recommended solely on the basis of which key pack a Per User CAL assignment appears under, especially when:
      • The environment is operational.
      • RD Licensing Diagnoser reports no problems.
      • CAL and server versions are within the supported compatibility matrix.
      For RDS CALs in general, the only documented migration-related action is when moving CALs between license servers (for example, when the source license server is no longer functioning), which is handled via the standard CAL migration wizard. There is no guidance to rebuild or clean the licensing database in a scenario like this where the same license server has been upgraded in place and is functioning correctly.

    In summary, the behavior described is consistent with supported Per User licensing behavior and version compatibility. The 2025 User CALs are valid for the 2019 Session Hosts and are considered in compliance as long as the total number of licensed users matches the purchased CALs; the specific key pack association in the tracking database does not require remediation when Diagnoser shows a healthy state.

    References:

    AI-generated content may be incorrect. Read our transparency notes for more information.

    Was this answer helpful?

Your answer

Answers can be marked as 'Accepted' by the question author and 'Recommended' by moderators, which helps users know the answer solved the author's problem.