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We propose a protocol upgrade to CreateTopicsRequest and CreatePartitionsRequest to specify a minimum number of replicas to be available at creation to satisfy the request. 
A new error code will be added to indicate a topic/partition creation was completed without the full replication factor.

Abroker configuration will be added to select the desired behavior when brokers are missing from the cluster and the user allowed creation with less replicas than the full list. handling a create request that accepts under-replication: Administrators can disallow, or allow creations of topics/partitions without the full replication factor. Another When allowed a su-option is to always prefer using all known brokers and their racks ( and have some under replication) , rather than immediately using currently available online brokers.
Topic policies could be used to add more complex validations, for exampleto allow creation with min-isr factor but not less.

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