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as others have said, it's completely open world.
They want you to go any place on the map at any time with any level.

With scaling, enemies are somewhat posing a challenge throughout the game. You frequently visit some of the areas/cities (Whiterun for example) to advance in the main quest or doing all the side quests and other dungeons.
What's the point if they don't scale and you already went to other regions and then come back to do the remaining side quests only to see that the enemies are 10 levels below yours?

I *could* agree with irstupid's idea that enemies should have a level range, but that already makes the game more linear.