I'd like to suggest refining the flagging system a bit. While I can't say it's been a majority, I noticed that quite a number of users who have sufficient reputation to vote to close or migrate a question are flagging as such without voting to close.
I'm guessing that at least 50% of the ones I've noticed are due to users simply being out of close votes and using flags instead. That's perfectly fine.
However, moderators should not be used as voting proxies.
Would it be unreasonable to reject flags such as "Off topic, [reason]" if a user can vote to close, has close votes left and has not voted to close the question themselves? I'm not saying that people are saving votes while increasing flag weight, I just want to make sure people use their votes.