I'd be very surprised if ZOS didn't have everything up to 1.9 already completed, or at least in a near release state. This depth of content is not simply made in a matter of weeks/months.
However, that is also ESO's biggest downfall. Paul, Matt (the suits) whoever is deemed to be in charge is screwed because all this is already well into the pipeline. They didn't expect it to be this bugged or for people (the players) to be so adamantly against certain aspects of the game.
Having masses of content lined up for release is great, until something goes wrong, then you suddenly realise your standing knee deep in Clanfear doo-doo !
It's too late for Zenimax to take the game offline, and they can't make brand new content fast enough to cope with the influx of unhappiness ! Sadly, until we reach an equilibrium of old and new content we are just going to have to put up what was already scheduled for release !