Yes, it can be a combination of both string and/or instrument scale, and particularly how your instrument is set up. But generally, flats require a longer break in period than rounds and will feel stiff longer.
I have several basses strung with different brand flats, gauges, etc. Flats definitely can vary in tension depending on gauge, bass, and also within the same gauges. TIs are generally known for being low tension flats, and I tend to agree. They were too flabby for my taste on my '73 P, but when I took those strings off and put them on my '71 Tele bass they were the perfect tension for me. This might be attributed to the fact that the Tele bass has a strung thru design. I currently have the LaBella Jamersons (Original 1954s: .052 -. 110 gauge) on my '73 P bass now, and while I had read that they were a heavy gauge high tension, after a suitable break in period and proper setup, I don't find that to be true at all. They're smooth as butter for me. But I also play around with different string heights/action to achieve a certain feel and playability on my basses, and on that P bass I like the thickest flats with semi-high action for ultimate thump. On short scale basses like a Hofner, unless the action's super high, the tension should be fairly manageable. I've got a set of Labella "Beatle Bass" flats on my Rogue Violin bass, and again, I find the tension very comfortable. And finally, on my '72 J I have an old set of D'Addario Chromes that are over a decade old. With a proper setup, I find none to be uncomfortable, but if you want deliberate higher tension flats I'd adjust your action and consider something other than the TIs.
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