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You would create a backend administration area where you have a page laid out. In the spaces for pictures there is an upload box. For content areas there are text feilds. Your design has to be fluid and all of the graphic navigational areas need to be placed in includes to be called by the new pages. I usually keep the navigational link info in the database because they are hard to update physically while your pages are in production.
It really isn't hard and can be done in any of the server-side scripting languages. It is just a lot of work.
The template pages are either created through the file system object or saved completely in a database. I prefer the file system object method because it is much more spider friendly.
Why not use a hybrid that is database driven and generates files. All data are stored in the database which makes it easy to handle the data.
If something changes, just a click and all files are changed. Backup and transferring the data can be done without downloading/uploading a mass of files.
NN