If you read the information, it allows the two highest scoring boys to attend the next level up.  They created a loophole this year so that all outposts, sections & districts could be represented, regardless of how they scored at the previous level.  I too ran into the problem of commanders substituting a similar merit, take into account that the leaders manual was written before the ROTY materials.  Other commanders just did their own thing and the boys were not ready.
 
Our section had two DR show up, but had promises of 2 RK & 1 AR.  Even though I asked for the applications to be in my hands with the $ one week ahead, I did not see them until Saturday morning.  A lot of preparation for only two boys who were not ready to be evaluated on many of the merits.

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