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The way you typically see them run... yes. Typically everyone tinkers in game with their lineups, roster moves, and finances... export those results which are then imported by the commish who sims in game for everyone creating a new game filer all members can then download to tinker with. And the cycle continues.
However, there is nothing preventing a league from being run without everyone having the game but it would all be instruction driven (via forums, slack, etc) with the commisioner having considerably more manual work to do. Because of the capabilities of OOTP for online play compared to other sports games out there... you are unlikely to see this mode of play offered up.
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