If the administrator creates a share with "full or change"
permissions; it allows the users with access to the share to create
folders at the root of the share. Is there a way to prevent this?

Here is an example:

1. Share is called "Data" and there are several sub-folders in the
share with appropriate NTFS permissions.
2. UserA has access to the "Data" share and decides to create a new
folder.. The administrator does not want this to happen.