There are cases where the conditions for VFR in a control zone applies, but depending on where the VFR flight is, he may opt to request Special VFR.
For instance, the weather is fine, but the aircraft has to cross a ridge, which will bring him closer to clouds than the prescribed VFR minima for the CTR, the only option would be to ask for special VFR (or fly around).
Noone does that though..... eventhough they remove the safety built into the class D airspace where "see and avoid" applies between IFR and VFR by removing the 1000 ft separation from the clouds where IFR flights will be dumping out.
I don't think 4444 mention that you are not allowed not to offer special VFR? Just never even mention the word "VFR" to an IFR flight... or even think about it (they'll come during the night and drag you off).