Lets say we have a child who is in 5th grade who reads at a 1st grade level. Most programs will say oh well he/she just needs more education so they create after school tutoring. That's great but there are so many things that can be hindering that child's ability to read. The real root may be a medical issue, family issue, cultural issue, structural or a combination of one or more.
People aren't equations, you can't just input x and expect y.