It's logarithmic. From NASA:
" And then come the X-class flares. Although X is the last letter, there are flares more than 10 times the power of an X1, so X-class flares can go higher than 9. The most powerful flare measured with modern methods was in 2003, during the last solar maximum, and it was so powerful that it overloaded the sensors measuring it. The sensors cut out at X28."