The scouts (usually) have an alternative completion requirement (namely, research or vision vapor).
The things that dramatically hinder small cities are KP quests, solving tournament encounters, and crafting (using relics new players are less likely to have). Those can be numerically scaled easily. The exact formula would obviously be up to the developers, but while 10 KP may be difficult for a chapter 1 city, it is effortless for me (as long as I didn't go on a KP buying spree between events). I could get that quest 100 times in a row and still be ok since I have so many sources of getting coins. Coin instants become quite powerful the higher we go since it's a percentage of our main hall limit.
And last I heard, the quests that require the Magic Academy still show up for players who don't yet have it. (Please correct me if I'm wrong.) The quests should not even appear for ch 1 players.