When an Admin creates a new account using Add User on the Seat Types and True Up page, there is no option to set a user up as a Provisional Member. Selecting Member immediately consumes a billable seat, even if the user is brand new to Smartsheet.
According to the Smartsheet Learning Center
https://help.smartsheet.com/articles/2483245-User-Subscription-Model-System-Admin-overview%2C
, a user only becomes a Provisional Member after performing a non‑viewing action when they’ve been shared to a workspace or sheet.
To avoid accidental assignment of billable seats, I’d like to propose adding a note or warning message on the Add User screen to remind Admins not to create users directly if the intention is for them to start as Provisional Members.
