Since the split from cyrodiil, a <50th level imperial city has been conspicuous in its absence. Now, especially with the event, <50th level rarely stand a chance against any cp160+ player regardless of cp/no cp on account of the very huge gear, skill line availabilty/rank and passive differences.
An under 50th level imperial city would somewhat level the playing field regarding gear, available/usable skills and passives and I'd very much like to see one in place permanently. No idea why it wasn't implemented when cyrodiil was separated.