The frequencies you specify are available when country is set to “no_country_set”. Try changing to any other country and see how list of available channels (frequencies) changes.
Is it something as simple as adjusting the scan list from default to say 5440,default for example? we have a few freq that are legit but not on the default scan list so despite setting the ap to freq xxxx the su wont scan so it never finds it. We just change scan list to that freq and then comma default so it has it and all defaults.