Balance is an especially tricky issue in an open-world series with a do-what-you-want ethos. If you make the game overly challenging for min-maxed, combat-focused characters, it will be too difficult to play other types of characters. TES is about exploring interesting places/situations/skillsets, not about tightly balanced tactical combat. Combat needs to be difficult enough that the player feels skilled/powerful, but not so challenging that it limits player freedom. Player responsibility for directing/balancing their in-game experience is the inevitable price of that freedom. Some folks prefer more external constraints. I see Bethesda as needing to chart a course that takes into account the enjoyment of both types of players--while remaining true to the essence of the series. Open-world, do-what-you-want CRPGs aren't for everyone, but it's good to keep the door as wide open as possible without sacrificing what makes these games special.
It seems that I have to write my suggestion for such situations yet another time:
We - can - have - game - worlds - that - can - satisfy - any - type - of - players - and - be - suitable - for - any - character - and - player - skill - level - if - we - follow - this - simple - rule :Make a game world with absolutely no level scaling, or very minimal form of it, but some randomization.
Make it big enough that we can have a lot of different areas suitable for any kind of characters, newbie characters, mid level characters, high level characters, and areas that are too hard even for high level characters.
Newbie areas should be suitable for newbie characters, filled with mostly low challenge and low reward situations with rare higher challenge and/or higher rewards situations.
There should be a lot of newbie places from the beginning of the game, and those areas can be connected, or have some small gaps between them that are areas a bit higher level than those newbie areas.
Mid level areas should be suitable mostly for mid level characters filled with low level to mid level challenge with occasional higher level challenges, and similar rewards, but mostly lower level rewards, with some mid level ones and a small chance of higher level rewards.
Mid level areas should also be plenty, but they could be connected or separate areas, which players could chance upon them.
There should also be higher level areas with mid to higher level challenges and low to higher level rewards, with a minimal chance of finding some real treasures there.
There should also be places that are always too dangerous for the normal players of a normal game, suitable for the persistent type that like to have challenge. Those places can be at hard to find, outlandish areas or in the depths of the most challenging dungeons, and so on...
Differentiate quests in their nominal challenge level and place them in the places most suitable for them, and this includes random quests as well.
Generally arrange quest lines especially the main quest line in a way that start in areas with lower challenge level and gradually advance toward areas that should provide more challenge and reward.
Let each player find the areas that are more suitable for his kind of game-play and would provide more satisfaction for him, so some could stick to areas that do not challenge them a lot and some could always be ahead of themselves and try to gain better gear sooner than others and frequent areas that would provide more challenge for them.
I'm sure each player find where he gains more satisfaction, and I hope there a lot of areas that are suitable for each character's game play style, so that no one would feel crammed in.
And eventually all characters grow in power and can experiment with new areas.