This sounds a lot like my daughter who has been doing Saxon 87 this year. It just didn't seem to be completely solidifying in her brain. I knew it would be disastrous to move her on to algebra without prealgebra being super solid, so after much research, we are doing Saxon 87 again using the WTMA class that uses Saxon. I corresponded with the teacher and was very impressed by what the class will be like. I'm not sure if it's in your budget, but I would check it out. The teacher was very helpful in answering my questions. For my daughter, I don't think Saxon was the problem. It actually helped her so much. But she just isn't ready for algebra.