A few people on landscaping, town layout, and building exteriors
A bunch of people each doing one or more interiors, including NPCs
Somebody doing exterior NPCs
Possibly a few people working on quests for the city
A project leader to combine all submitted resources into something functional
One idea is to combine the different architectures and cultures in the game into "neighborhoods" (live Vivec but with cultural architecture instead of cantons). We could have Telvanni, Hlaalu, and Redoran districts, an Imperial district, a Nord district, a sunken Daedric ruin, an old Dwemer facility converted into a factory or some other industrial base, the options are endless! What do you all think about this idea?