Can I distribute an Access application to users who don't have Access Licenses?

You can create and distribute a royalty-free run-time version of an Access application by using the Package & Deployment wizard in the Developer Edition of Access 2000. It costs a bit more than the other versions. (pricing:
http://msdn.microsoft.com/officedev/prodinfo/pricing.asp )

The run-time version does have some differences from the full version. Here is the list of differences from p. 102 of the MS documentation "Getting Results with MS Office 2000 Developer:

1) The Database, Macro, VB Environment, Design Views and Filter windows are all hidden.
2) Built-in toolbars aren't supported, but you can add your own custom toolbars.
3) Your application uses it's own Help file.
4) Some [additional] windows, menus and shortcut menus are hidden or disabled.
5) Errors not handled by your own VB code will shut down the app without warning.
6) Certain keystrokes and key combinations are disabled.

For more info:
http://msdn.microsoft.com/officedev/prodinfo/qa.asp