Hi @emurdock ,
Firstly, you could inactive different kinds of users with different licenses.
Usually, the functions from simple to complex: Office365->P1->P2
I recommend you inative common users with Office365, developers with P1, administrators with P2.
Since only users with P2 could create environments, they could create environments accoding to your company's demand and then give different permission to other users. You could refer the link that you listed to see permission in datails.
Here's a doc about guidance to those administrators responsible for planning, securing, deploying, and supporting applications built on the PowerApps platform for your reference:
https://powerapps.microsoft.com/en-us/blog/powerapps-enterprise-deployment-whitepaper/
Best regards,
Community Support Team _ Phoebe Liu