Simplify the following text for a Grade 4 native English-speaking person.
Original: From 2002 to 2008 the flow was increased from 1 % to 4 % , however targets of 15 % by 2009 and 21 % by 2012 are unlikely to be met .
Simplified: From 2002 to 2008 the flow was increased from 1 % to 4 % . The agreement planned to increase the flow to 15 % by 2009 and 21 % by 2012 .