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To write any form of executable code for consoles you need to sign up for the SDK - which is extremely expensive. Console games are not allowed to be moddable, because the modders would need to go through the SDK process. Microsoft and Sony do have hobbyist SDKs (XNA and Vita) but they were/are severely limited and watered down.
The only way to circumvent the whole thing would be for ZOS to select the more popular addons and deal with publishing them.
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