The reason that the "system" isn't working is that it's built around students choosing to do the bare minimum required to graduate. when a student actually shows initiative and wants to work hard to improve their future, the system completely breaks down.
This.
Waiting to see how Junior does on her reading this year. The schools are doing away with "AP" reading, and are now on some tiered number system for book difficulty.
The main difference supposedly are the types of "quizzes" administered to the kids afterwords. The old quizzes were more memorization - i.e. what color was Susie's dress? The new ones are supposed to be more theme/comprehension oriented, which is good, because Junior has a bad habit of reading things enough time to memorize the words, but not pay attention to what she's reading.
That's in part why I think her "fluency" scores went down at the end of the year, too. She was reading at a very high level for her age/class, and on the "easier" books, rather than taking the time to focus on what she's reading, she started glancing at the letters and groups of words and assuming what the rest of the sentence would say, or she would recite from memory. Consequently, she made a lot of mistakes.