Then there should be ground lots where you, the player, can decide what should be there. Be it a blacksmith, a general trader, an alchemist, a fletcher, a clothes store, a residence, a farm, an inn, and whatever I've forgotten could be added. Whatever you put there should affect what the city turns into. Like, if you add just shops and one inn, it'll be a trading hub and spawn more trading caravans. If you add residences, it'll become a NPC heavy area with a lot of side quests. If you add farms, you can own your own and make a steady income, etc.
And if you add just inns, well, consider Las Vegas of Skyrim.