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If we set the rules on Server that our Domain Users should not be able to send mails to 15 external users ( eg, yahoo.com, gmail.com, etc) if user sends mail addressing to16th yahoo and gmail address , the mail will not be deliver to the that 16th yahoo and gmail users as per the rules restriction. That mail will be block for all users .
So there should be a restriction for particular users only which is restrict in the Server rule. not for all users from the same domain.