Before you could download licenses for everything you owned even without the game being installed. Now you must install a game first before you can get a license for it. This will have major implications for jail breaking.
I could be wrong but it seems like before, licenses for games you owned but hadn’t downloaded were already loaded o to your account when you logged in. So in your example, if user 2 bought a game and didn’t download it on that console, then user 1 bought and downloaded it and took the PS5 offline, user 2 could still play it because his license was already there. Now, user 2 has to go online to grab the license first.
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I could be wrong but it seems like before, licenses for games you owned but hadn’t downloaded were already loaded o to your account when you logged in. So in your example, if user 2 bought a game and didn’t download it on that console, then user 1 bought and downloaded it and took the PS5 offline, user 2 could still play it because his license was already there. Now, user 2 has to go online to grab the license first.
Seems like it will have a minimal impact.
And only if the PS5 isn’t user 1’s home console, which if it is, the license extends to any other user on that console.