One possible solution could have been if they do the same statistical estimation game and then offer a choice to each student: you can take your estimated grades or go for an exam. If you take the exam you get what you het there. It might go lower or higher than the estimate. This would have incentivised that only those who are certain of themselves and their estimated grades are insuficient towards their goals will go for the tests. And since these are outliers already there will be a lot less of them than the general population, thus it is easier to organise socially distanced exams for them.
Of course nothing is easy at scale and many details need to be ironed out but thats what we keep the Miniszry of Education for.