I teach 4th grade and have recommended retaining students
who read and write at a 1st-2nd grade level. I know the
thought by our admin is : that the negative effect and
documented research of increased drop-out of students who
are retained is not worth retaining students---so students
have been retained who are below grade level and achieved
only D's and F's for the year on their report cards several
times with months of absences. Don't know if that is the
case here but I can only speak what I have seen.