In various ways (license sharing, illegal downloads), users may be using copies of the software that isn't correctly licensed, With the license amnesty program, you can buy Delphi XE, C++Builder XE, or RAD Studio XE and obtain free earlier version licenses for most versions back to Delphi 7 and C++Builder 6 as well as getting legal forgiveness for earlier illegal use of any of those versions.
This program is only available if you purchase XE licenses on your own. If Embarcadero or a license enforcement agency or organization have already identified an issue then the amnesty program does not apply and you may have further liability. This is just a good opportunity to get legal licenses on your own, before you're caught, and reduce your risk and your users' risk.
You can find out more about the program at http://www.embarcadero.com/get-legal.