If title matches aren't being created it is because the AI can't make any valid matches. Just because you've made people available does not mean that they're valid challengers - they need to be of the right level and disposition, can't have been a recent failed challenger, can't be being used elsewhere, can't be coming off a losing streak or bad momentum, etc, etc, and must be able to fit into a match against the current champion.
Having 11 titles and spamming multiple title defences is likely your problem, as you're basically guaranteeing that most of your roster are going to be coming off a loss to a champion and therefore are going to be ineligible for any further title shots until they've gotten back onto a winning streak - the only people who'll be on a winning streak are your 11 champions, and they can't challenge each other as they're already champions.