It just implies that some dungeons have static levels if you ask me, not that all of them do, which is kind of similar to how Morrowind did it. In Morrowind, random spawns were generally leveled, but hand placed enemies and loot were not. This was particularly noticable with bandits and other humanoid foes, as they were generally hand-placed, thus bandit hideouts were often some of the more dangerous dungeons at low levels.
Alternately, it could mean that leveled enemies and loot will sometimes have a minimum level, so that if you have, say, a dungeon populated by level 10 enemies, even if you go there at level 1, you'll still face level 10 enemies, but if you go there when you're above level ten, the enemies might scale up to your level. This is actually something I'd hope to see for level scaling, not for every encounter, of course, I want some encounters to have static levels, and obviously, there needs to be enemies that even a level one character can survive an encounter with. By implementing minimum levels for certain locations, one can adress the issue of level scaling making almost every location in the game safe to explore at level 1 like in Oblivion, while still maintaining some enemies that can be a threat to high level characters, and having the threat level of dungeons still be somewhat variable.
Whatever the case, if Bethesda decided to do away with level scaling entirely at some point during development, I'd think that would be something they'd mention, so I doubt they've decided to do so.