If you are a JIRA admin, you can create the projects. You cannot restrict it to selected admins, without doing custom development in JIRA.
I would recommend enforcing it by policy, instead of trying to customize JIRA. Project creation events are logged and hence you can always track who created the project.
Jobin means you should tell your people what and how to do things, rather than try to deal with it in JIRA.
Most of us have a JIRA support project, with a "project" type issue type so that users can quickly ask the admins for a new project. For large installs, some of us automate the process, so that new projects are created via post-functions.
A better option is to have a look in the marketplace though - there are several project handling add-ons. From memory, the one from Wittified is very good and I think handles delegation, so you can have a group of "project creators"
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