This. Winterhold is laughable, who believes the excuses the jarl comes with? We all know it's laziness. I mean HOLD capitals, Winterhold, Dawnstar, Morthal, Falkhearth.... what is a HOLD capital if it looks like a village from another hold? What is a HOLD capital if it doesn't have another village or farm in it? (Winterhold, Dawnstar) I mean, all holds should be comparable, if Dawnstar is so tiny, it should be part of the Solitude one.
What I wonder is if those four you name, except maybe Winterhold, before that tragedy of-course, (and only because Winterhold might have been a rather size-able settlement) are simply "capitals" for where they are geographically? I'd guess that having Solitude, Markarth, Whiterun, Windhelm and Riften as surviving major settlements to be plenty for the size of Skyrim. I'm guessing this, since the most common way to send information, seems to be by courier and I haven't seen them on horseback yet.
So I could see the King, before getting killed, sending those four Jarls to those Holds to run those territories from those "capitals" in his honor. It seems that the Jarls can easily be kicked out of their positions at any rate, so why couldn't a few be created by a King's whim and then inherited during the events that play out in the game?
It'll be sweet if we could be completely rid of a few of those essential NPCs in future quests, maybe through that radiant stuff I've heard about. :gun: