Allocating license server to users in FLEXlm (flexnet publisher) is done by local settings on the end users machine. There are different implementations, depending on the vendor preferences.
It might be set in registry, file or environment variable and typically can be controlled by the user, which is a problem.
Such implementation do not allow the administrator to change the setting in response to event (server down, department is off). It also allows the user to temper with the settings and cause compliance and license shortage.