Two EE and overpaid grade 7, no wonder the paltry raise. Anytime you are at any grade for more than six or seven years forget it, even a couple E/O won't get you promoted.
Conversation will go like this for someone with double EE/O or combo.
"Should we promote him, he got two good years?"
"Nope he has been in the grade forever, he maxed out, just two luck years Back to back, he will never be competitive at the next level and why he is in current grade forever"
You are totally VSP/ISP candidate in a year or two as you have stalled out and overpaid and not going to advance.