He’s the game director, it makes sense that things would go through him.

I’ve read similar things about the development of Morrowind, about creative decisions needing to get past Todd, in this excellent article about its development.

Here are some quotes from Michael Kirkbride:

The game was originally set in the Summerset Isles. And then we got bored and decided, “Man, this is really boring. How about we put it in a volcano with like giant bugs everywhere?” And people were like, “What?” So Todd Howard — the easiest way to get anything past Todd, at that time, was you basically just had to say “Star Wars.” Which was true for me and anybody then. So I was like, “The game should be like Dark Crystal meets Star Wars.” And he was immediately hooked. I got all the bug creatures I ever needed, we moved it from Summerset Isles to this weird dark-elf place on the map, and we just went from there.

I used to have this thing with Todd, because he was one of the ones that’s like, “Let’s not make it too weird.” So I’d bamboozle him. There was a period where I would actually draw two different versions of a monster — the one that was weird and that I wanted to be in the game, and then one that was fucking crazy. And so I’d go to Todd, and I’m like, “OK, I think I’ve got the mid-level creature set.” And I’d show him a picture. He’d be like, “Nah, dude, that’s crazy.” Then I’d go back to my office and I would act like I was drawing something new, and I’d just come back with the original drawing of what I really wanted to be in there. Like, “Hey, is this what you were thinking?” And he’d be all, “Oh, yeah, that’s much better. That’s great.”

I can definitely believe his influence has become immense following the studio’s success - though it definitely feels like he needs to hand the reins over to somebody else.