It's not clear whether you mean on the client side or the broker side...
Assuming you mean the broker side, you don't need to create topics, they are created automatically as needed. You can control what clients have access to what topics using the built in authentication and ACL code, or you could use an authentication and access plugin. Writing your own is quite easy, or you could use the excellent https://github.com/jpmens/mosquitto-auth-plug
On the client side, simply subscribing or publishing to a topic is sufficient to create it on the broker, assuming you have permissions for that topic. This may not be the case in all MQTT implementations.
As an example, try subscribing to the #
topic on test.mosquitto.org
or iot.eclipse.org
. These show a huge range of available topics and there is no admin to support them in the background.
This basically means that the only administrative load you have is restricting access on the broker where required.