There are groups in every province who don't pay any attention to it, and it can no longer enforce them. Some of them are quite influential. The entirety of Summerset Isle and Black Marsh do not allow the empire to make decisions for them, and the empire there is almost non-existant. It's the same with most of Morrowind, the whole of northern Skyrim, and large areas of High Rock, Hammerfell, and Elsweyr. Even in Cyrodiil, it seems that some lands are controlled by the Renrijra Krin.
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