That is a critical issue that affects retention. There is too much spiraling and repetition in program elements, and the revamp to make it easier for adult volunteers to run multi rank meetings only made it worse. The program also repeats some of the K-5 school curriculum.
Some good suggestions @PACAN.
I would add a change to the mission of the Councils and Districts to solely be "support the units". Nothing else matters. All metrics used to assess performance of Councils, Districts and their staff should be based only on their support of the units.
One of the reasons why they dropped Webelos from 5th grade to 4th & 5th grade circa 1989. Webelos was meant to be a transition, doing things more ont he order of Boy Scouts, and prepping them. When Webelos DLs no longer got separate training with an emphasis on transitioning from Cubs to Scouts, a lot was lost. Folks were not doing the 18-24 month Webelos properly, and it became a continuation of Cubs. And now that is the norm