With:

jpackage create-image \
    --input out/artifacts \
    --output out \
    --limit-modules java.base \
    --main-jar Jpackager-Hello-jar/Jpackager-Hello.jar \
    --class Main

The resulting image does not limit the modules to java.base.

Running out/Main/runtime/bin/java --list-modules shows all the JDK modules.  There is no documentation that says what is limited or that it does not apply to the predefined java runtime.