From what I remember reading and hearing Hammerstation, Athiss, Mandalorian Raiders, and Cadamimu weren't originally planned to be flashpoints (further confirmed since the only Hard Mode Flashpoints are BT, Boarding Party, Foundry, Directive 7, Battle of Ilum, and False Emperor). Therefore the progression from flashpoints would be from Black Talon to Boarding Party which would leave approximately 20 levels where there was no appropriate level flashpoint. If they didn't add those flashpoints in, people would be complaining about how there aren't enough flashpoints between level 15-30.