Source: The NA-RP Community Guild Map
http://forums.elderscrollsonline.com/discussion/142887/the-na-rp-community-guild-map#latest
Across the AD zones we have 10 roleplaying guilds.
The Ebonheart Pact has 34.
I've been wracking my brain with a friend trying to think of ways WE can fix this, but ultimately... WE can't. We've done everything we could since launch to make the AD work for us, hosting events and connecting guilds, but the AD doesn't work for itself. The zones were not given the amount of thought that EP zones were, there are inconsistencies, there are horribly planned/presented cities and stories, there are countless areas that COULD be DECENT for roleplaying if not for X, Y or Z.
Altmer were not given the amount of attention they needed to be the solid core of The Dominion. Their buildings are tiny, simple, mundane and generally ugly with unclear purposes. They don't reflect the attitude the altmer have about themselves or what we expect of this noble race.
Elden Root is beautiful from afar but in and around it, there is nothing of roleplayable value, there is no sense that this is the living and breathing city it's supposed to be. Add a level or three, give us a housing district with podhomes in the branches, or on fungus-platforms. Let us see more of the Camoran dynasty, the nobles that are said to be somewhere up there.
Show us that the Gray Mire argonians and that SOME wood orcs have done better to integrate with The Dominion, that elven rule doesn't mean domination and that (contrary to the storyline) The Dominion isn't tearing each other / themselves apart as they flail and fumble toward Cyrodiil. We just need more. And I don't think it's going to get better with the release of Wrothgar and Murkmire, though personally my guild will be actively recruiting orcs and argonians from these zones ICly.