MMOs really only have three choices for expansion content:
1) New landmasses. Nirn's known landmasses consist of Atmora, Tamriel, Akavir, and the islands that are the remnants of Yokuda. The game is set in Tamriel, Atmora is supposed to be a frozen wasteland, and Akavir is so foreign and dangerous that it's only ever referenced--Pretty much everyone that goes there never comes back (there are exceptions, but this is the rule).
2) Restricted areas. ESO is going this route--By leaving areas out of the base game and blocking them off somehow, they have new territories to expand into without creating new landmasses. How they do the restrictions plays a huge part in how well people react. With it being a time of war between the provinces, they can legitimately put up walls and roadblocks without them looking horribly out of place.
3) Cataclysmic changes. So far as we know, this never happens on a massive scale during the course of Tamriel's recorded history, so it's off the table.
Yes, they can build new towns in existing spaces, or uncover hidden spaces, but those are typically smaller scale changes than what a full expansion brings.