Regarding High Rock, it is similar to Elsweyr. While committed more to the war, Bretons are too busy caring about High Rock to be devoted to helping the Empire. Hammerfell also had its own problems.
To be honest my impression of the Empire from Morrowind and lore was that it was a little more 'authoritarian' and centralized than that. As if the Emperor could 'order' levies to be raised whenever he wished. But after seeing Oblivion and Skyrim it's become clear that there's a sort of quasi feudalism going on here, which may be why the Bretons didn't help much. But that begs the question, if all of the Empire's 'core provinces' of Cyrodiil, Skyrim, High Rock, and presumably also Hammerfell are largely under the personal control of petty lords, how have the legions come about in the first place?
Prior to the Great War I believe that the Emperor had dozens of legions of 5,000 men each, who were all well armed, well trained, and disciplined forces. But, where are these men coming from if the Counts and Jarls and whoever else are essentially in a 'Feudalism, Vassal' arrangement with the Emperor, who only directly controls (it could be assumed) the Imperial City and its surrounding region?