What do you mean "ban developers for most users"? Most users get their apps through the play store, which will still exist here. Some users sideload apks, which is also a functionality that will still exist.

> we will see this used against something that is not malware.

See what exactly used against something that is not malware? The Play Store already has requirements other than "don't be malware". If you're talking about the sideloading requirements, all of these requirements apply to every app, not just malware.