Not normal for all girls, but not unheard of. We have a one girl who has repeated level 8 for at least 3 years, and then another who has competed level 9 all through high school. I don’t know the exact reasoning why, I think there might be injuries they are dealing with, but not totally sure.
Our coaches rule is they have to have 3 of 4 events competition ready, with a plan to get the 4th at some point in the season to compete X level. We don’t have specialist usually either, and unless there’s an injury, all girls are competing all 4 events by their last state qualifying state meet and competing at state.
Judging by what you said I’m not sure it’s a red flag without more info, it could be, but it could also be totally normal and the coaches are putting the girls where they will be most successful. I know we don’t always understand all the level placements in October, but by March at state it usually all makes sense.