You do realise that’s written in such a way that it gives the FIA the power to grant a superlicence to anyone they see fit, right? It’s a loophole they’ve written for themselves. You can tell because it is a qualitative, rather than quantitative, criteria, and so is open to interpretation. There is probably no defintiion of what “consistently demonstrated outstanding ability in single-seater formula cars” actually means.
It remains to be verified, of course, but it appears fairly obvious that HRT approached the FIA and told them they had the chance to secure funding that would guarantee their immediate future, but in order to get it, Ma needed to get some track time at Grands Prix. Given the weight of this situation, the FIA probably agreed that they could issue a superlicence for the time being. I believe they gave Ho-Pin Tung a superlicence that was valid for four races late in 2010, though he never used it. They’ve probably done the same thing here, and if HRT want to promote Ma to a full-time race seat, then they will probably examine him a little bit more critically.