If the kid has done his best, meets the requirements and performs the actions required then don't hold them back. Many troops do hold kids back until they "deserve to be Eagle" and good luck to them. With the number of kids that quit because tying knots and cooking is too much work you try to do what you can with what you have. I recall a few years that the national average is just under 15 yo. Once high school hits their time becomes precious and scarce with homework and other activities.