You should have made gear level a prerequisite for higher tier mods. Want to apply a level 9 to 11 mod? OK, get gear level 9 first. Want to apply a level 12 to 15 mod? Or a tier 5? OK, get gear level 10.
Gear is close to pointless now. I have no need for raid gear now. Applying it is a negligible difference as compared to mods. The more I see the more shocked I am. This can't be what they intended...