Some, even most, of the best Scouts I knew never made Eagle. I did, but only under some parental compulsion. It's an administrative/political thing, much like John Kerry getting his three Purple Hearts for paper cuts, IMNSHO. You have to go in there and get the paperwork done. If you don't, you can't call yourself an Eagle, even if you "just didn't document it." Those of us who reluctantly did, can bitch a little about that process. I started THREE Eagle projects. I finally stumbled onto the concept that if the local PD was involved, especially with an ambitious then-Sergeant, later Lieutenant, and eventually Chief of Police lending his name to the thing, Troop, District and Council fops would have a harder time turning it down. Those guys hated me, but eventually had to pin me. How I eventually went OA is a much more amusing story.