Hey, all licenses must be of equal limits. The AP's function is not taken into account. You have to make AP license + PEF license + RFP license the same amount. If the licenses aren't at the same number, the controller is limited to the smaller of the 3 numbers.
If you have the following below for example, a controller would be licensed to 8 AP's only.
16x AP
16x PEF
8x RF Protect