Todd Howard is a figurehead. Soulless corporate overlords control these games.
In their head quarters, as with any self-respecting business centre, there is a small closed lid with the other elevator buttons. You unlock it with a small key, and are granted access to the hidden level. This comprises of three entire stories - all in one floor, with high ceilings, dim lighting, and at the end, a long table, with dark velvet curtains draping the walls.
This is the brandy room. Here the real decisions are made, and always under the influence of copious ammounts of opium and ketamine, coupled with pastries made from semen and menstruation blood, concluded by sessions of prostate stimulation