Thank you for all of your input. I do not know all of the details of the older boys, but I do know that they were all told a variation of "We need to see some maturity from you in the next 6 months before you have a BOR". And, come to find out, there is a third boy as well. These boys are all 13-14 yrs old.
As for my son, the requirement he has left to complete for 2nd Class is #8a, "Complete a drug program" (paraphrasing). Our school system has a county-wide drug program every October, so he will be finished with his requirements at that time. He will be terribly disappointed if he has to wait until spring to earn the actual rank. I can not see the benefit in holding an 11 year boy's rank back if he has completed everything. Not to mention that he has 1/2 of the requirements for 1st Class met. He won't want to bother and I can't say that I will blame him. He is a high achiever motivated by badges and patches right now. I know that will change with time, but I am afraid he will lose interest if he is put on a "rank-a-year" program. We did that in Cub Scouts. Boy Scouts was represented to us as go at your own pace program. I understand the importance of "Scout Spirit" and working well with others, but 11 year old boys are, well, 11 year old boys.