I think things are fine as they are for an FR5. There have been times when I would have begged, have begged, while admin of FP1 for an FR5 to be processed by the official factions. Zoners being somewhat unique due to three official factions and rarely having more than 2 of the 3 agree on anything, ever; getting one processed used to be nigh unto impossible.
While we role played denial of docking rights, an actual FR5 wasn't happening. We also would place bounties upon repeat offenders (Thank you Reavers, thank you MercNet) Not surprisingly though, the same persons we'd hope to FR5 were also committing rules infractions... 6.10 shooting and then docking at the station owned by the faction being shot at; re-engaging; many such. Thus if the issue was serious enough, instead of begging for an FR5 we processed rules violations, which were far more serious.
Role play has changed somewhat since last summer and fall. Several of the Freeports have united under a common and codified set of laws, and the confederation has the support of the official factions. A report is sent to us, and we all discuss the report and the level of evidence. Often times we go back to the one who made the report and say "thank you, but we need more of X, showing timestamps, as well as previous action Y prior to the incident at the station"
To me, this expands the role play, keeps everything inRP, and is fair enough to the accused that they can answer to the charges inRP or ignore them. If ignored, we process the FR5 with the admins. If it's a rules violation, we process those as well.
My experiences since last summer through to the present have tempered me in regards to filing an FR5. There are as many inRP options to do instead of filing an FR5 as there are of avoiding receiving one. Not having the option of an FR5 has taught me that, and I find myself still going through those options first before making the filing. Thus, for the official factions in which I've had the ability to make the report myself, I rarely do so unless other means haven't worked. The combined FR5 requests from ALG, Mollys and Gateway can be counted on the digits of one hand.
The system we have is fine as it stands. I don't want an FLHook ability to set an FR5 myself, I want the oversight to ensure that my T's have been crossed and my I's dotted, and that means to me that when I submit one to the admins, I know that there is enough there for it to be accepted. If I'm not 100% certain myself before filing the report, I don't file it, but data bank the information for use in a later report to prove a pattern of bad behavior.
In regards to the OP, it's been a long time since the official Zoner factions and the Freeports have been on the same page with regards to submitting an FR5 request. We don't move forward unless there is agreement to do so based on the evidence provided. Many reports get banked for future use as they are not enough for an FR5; and as I said previously, often times we go back to the reporter and say we need more. Remember though, when it comes to the Zoners, an infraction worthy of an FR5 at Corfu when processed also makes that offender hostile to FP2 in Bering, and FP10 in Tau 37, as well as FP1 in Omega 3. All of this is taken into consideration before an FR5 is filed.