I don't quite get this argument. How is that different from any piece of software that an employee will want in any sort of enterprise setting? From an IT operations perspective it is true that Docker Desktop on Windows is a little more annoying than something like an Adobe product, because Docker Desktop users need their local user to be part of their local docker security group on their specific machine. Aside from that I would argue that Docker Desktop is by far one of the easiest developer tools (and do note that I said developer tools) to track licenses for.
In non-enterprise setups I can see why it would be annoying but I suspect that's why it's free for companies with fewer than 250 people and 10 million in revenue.