Not everyone can get mods. Console players can not get mods. There are more people playing on console then on pc. If you do not want to pay for it that is fine. It would just be an add on. I personally would pay because the current outfits are starting to get a little stale.
Yeah, but think about it. PC players can modify clothing and armor for free, but console players will be getting a DLC for just new armor and clothing and have to pay for it? You have to admit, it sounds kind of silly, but I am sure people would still buy it. But my personal opinion in it, I would rather have Bethesda make something DLC worthy that has new land/storyline and still include new weapons and armor, like Dawnguard. A DLC for only clothing and armor? Not something I would spend money on, unless we're talking about something the size of Gun Runner's Arsenal, including a load of new weapons and armor, but I highly doubt that will happen for TES.