1- ZOS must implement the pvp everywhere with the Warmode option. If you don't want to pvp keep Warmode off.
2- Limit the faction population on each map, so you can avoid to crowd a map with only one faction.
3- Make a war zone day or week on specifics maps with good rewards to control where pvpers are going to.
The pvpers will be in small and diferents areas doing what they like to do, fight against other players without lag.
We could see Cyrodill not so crowded and preforming better specifically on the weekends.