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I would send them to VIP guests as well as any guests who need longer than 6 to 8 weeks to determine if they can come and make the necessary arrangements.
Beyond that, you can send them to anyone else you plan to actually invite. That's up to you, but every save-the-date must be followed by an actual invitation to the wedding.
I would stick with PP and send to only VIPs and OOT guests first. You can always send formal invites to more than those who received STDs.Similarly to @julieanne912, FI and I sent STDs to a good chunk of our guest list for our wedding next May...here's where we differ: FI's best man and best man's gf had been in a long-term relationship, and lived together, so naturally we sent the STD to both of them as a couple. FF to 1 month ago, and SURPRISE, they are no longer best man & lady friend. I wouldn't be upset/confused about what to do if said lady friend had also been a friend of mine/FI's outside of just being best man's lady friend...but now I truly don't know what to do bc she was given an STD, so etiquette says formal invite is to follow. I don't want to be rude nor do I want to hurt anyone's feelings.