Could you please share a bit more about your scenario?
Do you want to restrict Users in the Organization to not to create Apps only use Shared Apps?
If you want to restrict Users in the Organization to not to create Apps in Production, Stage, Dev Environments, you must remove any Security Role for the users from these Environments. In other words, do not assign any Security Role for the users within these Environments.
More details about configuring security role in PowerApps Environment, please check the following article:
When I tried to remove all users from Maker Security Role I got "Cannot delete all users in the org from Environment Maker role for the default environment." In the Default environment.
the scenario is to turn on PowrApps license for all the users in the Organization so they can use the apps we created but as we don't have sufficient resources to work with them if they try to create an app and have questions, for time being we want to take away "Create" app rights. How to do that?
Everyone who gets PowerApp license by default getting access to the default environment and have Maker rights.