As far as I can tell, the 'at large' section is divided into two sections, which doesn't necessarily mean they're being listed as villains, which I initially assumed they were.
The arrangement of the board does distress me a little, given I don't like the idea of Helena being cut loose.
Also, I think Batwoman might not be on their current board because apparently, isn't it due to be taking place outside of current continuity, to some degree? I've heard Rucka and Williams III have had it done for ages, and it was just a matter of finding the right time to launch it.