User blog comment:Zippertrain85/Why The Imperials Are Wrong/@comment-172.6.60.43-20130709154014/@comment-9062114-20130711221742

Actually, you can find Thalmor Justiciars as early as level 1, in places such as the Thalmor Emissary, as well as wandering outside of Whiterun and similar holds. And it says that the Thalmor are the third legion of the Dominion somewhere one this wiki,I believe. And by the way, this is lore, or it's likely to be in TES 6. There's very little lore about Thirsk Mead Hall, doesn't mean it doesn't exist or was never found by.... Hrothmund, I believe?

It doesn't matter. Because you encounter them later in the story. It seems that the levels are based on that. That could also explain why the Stormcloaks and Imperials are so low. If it's only on the wiki then it isn't really lore because anyone can edit the wiki. Unless it's based on in game evidence of course.