This of course assumes Skyrim isn't having its own infighting. Though Solitude and Dawnstar could have a greater influence, due to their combined wealth and alliance that outshines any other city, Dawnstar has the problem of infighting and a divided government. In addition, Winterhold did go through quite a renaissance when there was an influx of dunmer refugees, making it a place of culture and academics, but they hate those of Solitude. The other cities did poorly at the end of the third era.
Of course, if we're going with the idea of what you said, a powerful human figure is going to rise to perform all of this unification. Of who (or whom) that may be has yet to be known.