That is just the case for HKU.
CUHK and HKUST accepts F.5 students with excellent academic results.
There are few cases every year, reported in news paper.
Here are my friends' news.
https://hk.news.yahoo.com/%E7%A5 ... 4%A7-221107246.html
You cant apply for university by JUPAS if you are F.5 or below. That is definite.
But, for non-jupas, the admission is done by university and not supervised by HKEAA/any government.
I am not sure why you have that conclusion.
I am definitely sure about what I had said.