We have two user groups in JIRA - internal employees and customer.
Customer have less rights than employees.
We don't want that the customer can create Agile Boards.
We want that only somebody can create an Agile Board who has special permission to do this (like he is project lead, or he gets a special permission).
I believe that the Create Shared Objects permission is what also allows a user to create a new Board. If your customer group does not have that permission, then I believe you will be fine. The button for Create Board won't even appear if they do not have the create shared permission.
Alternatively (depending on your licenses and configuration), you may be able to restrict access to the JIRA Software application from Admin > Applications > Application Access to deselect JIRA Software from defaulting to a user group that doesn't need to see the actual boards, only the issues.
For example, we only want our Product Owners to be able to create boards so as to not have conflicting boards created by any developer, so we only gave their PO group the Create Shared Objects permission. If a regular user wants to share out their personal filters or dashboards, they can request that we admins share it out to their audience.
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