Skyrim is dotted with little villages, each with their own economy. There need to be some more visual cues as to how well these communities are doing. As a small farm begins to increase in prosperity things should change. A dirt road should become partly paved, the facilities available should, likewise, expand. That small town with just a grindstone now has a forge with a blacksmith working full-time. The more money you invest in his business, the better his personal assets and facilities become. His house gets another floor, his work area is enlarged and he has more money to spend etc...
Similarly, you should be able to set up your own shop. Give an NPC some goods to sell and see people coming and going from your little store (which, initially could be a small stand in a market place). You could then buy a proper store, or have one running form your home.
The holdings of farming villages should increase, more guards, more land, more crops, more residents. This would allow for some interesting randomly generated quests dealing with corruption. It's a great way to make a lasting impact on the world and provides a cash sink for the rich to entertain themselves with.
The sky's the limit, you could invest in anti-dragon equipment, employ guards to use them etc...
You should never be able to become mayor though you can become a 'benefactor' or something similar with various entitlements. Once you've done enough to aid the world of skyrim as an investor, the monarch (whoever it is in your game) should bestow rewards upon you. Perhaps even task you with establishing your own small village in a small set of locations, only then would you 'own' it (and with it, take quests to influence its growth and running).
Just an idea.