For example, this post seems off topic to me, but there's no good flag to close it. It's not unclear, it's not too broad, it doesn't fit any of the "off topic because" scenarios; it's just not about programming and doesn't belong on SO or any of the other suggestions.
Here's another one. How are we supposed to flag these as off topic?
So it seems that there is no issue if one has enough reputation to vote to close; however, it seems that users with lower reputation should still be able to flag a question as (generally) off-topic.