The general answer is that you can't create award sets. You can create and customize specific awards for a section, a group of sections, or a book. I'm interested in what you are trying to do.
Are you needing to do this with the new T&T books? If so, you can choose from three award sets for those books: Emblems (the UA colored chevrons), UC1 or UC2 award sets. The default is set by opening the generic handbook record (in the Legacy database: under Admin > Curriculum; in the Windows App: under Admin > System Settings > Curriculum) and going to the Cumulative Section Awards tab. The default there determines what award set goes with a book when it is assigned. It will NOT have an impact on books already assigned.
For books already assigned, open the Member Record and go to the Handbook tab. The 'award set' can be changed in the grid for a specific book as needed. That determines which set of awards that clubber receives for that book.
You can also customize the specific awards in a set in the grid of the Cumulative Section Awards tab, so if you give the UC awards in a different order, those can be changed.
If you really do want your own set of awards to trigger for something else, I suggest that you send an email to support with details (the book, the award/s to use, how they are earned) and we'll go from there.