Aside from the fact that Voyager was far from home and probably focused on bigger concerns at least some of the time, could part of the reason Harry Kim never got promoted beyond Ensign be that Chakotay wasn't very good at being a first officer?
Calm down, that wasn't a dig at him, let me explain: We know from TNG that it is the first officer's job to perform crew performance reviews and make recommendations about promotions and such. Nothing in canon specified that Chakotay had ever even served aboard a Federation Starship before. (His character bible suggests he served aboard the U.S.S. Merrimac at some point in his past, but that never made the screen, and even if true, it may have been as a junior officer.) His role in Starfleet before he resigned to join the Marquis was as an instructor in Starfleet Academy's Advanced Tactical Training - not exactly a course that focuses on the bureaucratic elements of command, I wouldn't think. One might assume that there would be some training materials onboard Voyager, using the holodeck, perhaps - but how much time did Chakotay spend with them? How much time did he get to spend with them? He was already doing the job.
So maybe he never did the reviews. Maybe he did them, but let them sit unsubmitted to Starfleet, even after communications was restored, because bandwidth was at a premium - or because he just didn't think about it!
Calm down, that wasn't a dig at him, let me explain: We know from TNG that it is the first officer's job to perform crew performance reviews and make recommendations about promotions and such. Nothing in canon specified that Chakotay had ever even served aboard a Federation Starship before. (His character bible suggests he served aboard the U.S.S. Merrimac at some point in his past, but that never made the screen, and even if true, it may have been as a junior officer.) His role in Starfleet before he resigned to join the Marquis was as an instructor in Starfleet Academy's Advanced Tactical Training - not exactly a course that focuses on the bureaucratic elements of command, I wouldn't think. One might assume that there would be some training materials onboard Voyager, using the holodeck, perhaps - but how much time did Chakotay spend with them? How much time did he get to spend with them? He was already doing the job.
So maybe he never did the reviews. Maybe he did them, but let them sit unsubmitted to Starfleet, even after communications was restored, because bandwidth was at a premium - or because he just didn't think about it!