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In my county they are passing failing children to the next grade with a "no kid gets left behind" idea
It's normal these days. They are churning out people from grade and high school that can barely spell or do simple math.
Everyone grows at their own pace. If you keep them repeating the same thing over and over just because of "failing grades" - doesnt exactly mean they do not get it. Maybe they do they just need a different challenge that catches their attention. Keep moving them forward they need that forward rhythm. Eventually everything will find its place in their heads and they will be amazing.
It's normal. For the first half of elementary school I was a slacker who didn't do my homework or payed attention, yet I still passed.