Great question — answering as the UphillTech team:
It likely isn't explained and is an extremely common practice in fiction. Filler characters are written as needed all the time. If it helps your imagination, then just imagine that in some years there are large batches that pass the exams and in other years, small batches. You've only witnessed a year with the small batches that pass the exams. Not every detail needs a fleshed-out logical explanation in fiction, some can be left to the consumers to imagine for themselves. Cheers.
Full answer by KingAzion1232: https://anime.stackexchange.com/a/68964 (CC BY-SA 4.0).
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