Skyrim isn't missing in content, it's missing in compelling content.
Then what is compelling content?
That precisely the problem I'm talking about. Player's should feel compelled to explore new areas, towns, cities because they are compelling in and of themselves. If the reason a player is exploring is simply because they've a quest in the journal telling them to do so, then Bethesda has failed at creating a compelling world. They've cheated.
No, again, this doesn't work that way. NO games work that way.
You cannot just tell them "go out explore, there are interesting stuff out there, honest!". Frankly the real problem tend to be that there are too many content to go out and explore, just so that you cannot even begin. You need an overal goal, you need a head start, you need a guide for that, players won't be compelled to explore by themselves even if the content is "compelling", how would they know that, you go out and explore to figure it out.
And again all games do this, New Vegas did it more and forced you on the path even more, Morrowind did this, the following the main quest makes you visit multiple towns in a row so you can do the sidequests found there. Guild quests makes you basically to do multiple quests in different towns...
I really don't know where you got this idea of design, but games don't work that way.