Just as another point of reference, one of our local races here in Chicago yesterday had 29 kids in the Juniors 9-14 field. The winner did 2 laps in 14:12. That pace would've been good enough for 2nd place in the Men's Cat 4 race.
There were 3 kids at the tail end who only got one lap in. The winner had lapped them twice before they finished. Most of the kids who did 2 laps had times around 18-22mins.
There's just a huge gap between a 9-10y.o's. doing their first races and a 14 year old who's done a few dozen races.