I know that my posts are boring and at the risk of killing this thread, I'll repeat what I said earlier:
you need to politely explain to your RO how he could possibly 'beef up' your write up.
I believe that for the most part you have a responsibility to yourself to make sure that
your report does you justice. Don't blame it on the poor writing skills of your 1RO.
You may be unlucky enough to have a Boss that really does not see how good you are, or alternatively you may not be as good as you think you are (not pointing any fingers). But for the most part, I think that the system we have is as fair as we can get.
Interestingly (see my comment about my posts being boring), I've read that employees in organisations that have little chance of promotion are usually happier than those who work in places that promote under a merit system; i.e. they don't expect to get promoted so are therefore not disappointed with staying at the same level/grade.