It includes users with "use app" permission. In our organization we all have access to PowerApps to create for ourselves. Yes, disabling the app creation for all users would solve this issue. However, I would not recommend such action because often (at least in my org) users will themselves start building apps for their needs, limiting this would be decrease productivity. In my case, I built an app for everyone to use, it stores all data in SQL server. For everyone to be able to use this App I had to share the SQL connection with the users. Now if they go building apps they will see this connection when they click to add new data sources.