I have to say, from my perspective here, that's completely nuts.
My son had a rough time of it in kindy due to a learning disability, and was allowed to attend two days a week after Christmas. His teacher was incredibly supportive. I took him on field trips around the city, and he dictated reports to me about it, which he then read to the class on the days he attended. In grade 1, he needed more focus on physical therapy, so I home schooled him through to the end of grade 5, after which he went back to public school - straight into the Gifted program. My son is now in university.
I know another kid who had severe (diagnosed) anxiety issues. He attended sporadically until high school. He did quite well in high school and is now in college.
I appreciate the way the schools were always willing to work with us, to ensure our kids got the best possible education for them. I think if I lived in a place with policies as draconian as you're describing, I'd probably have just home schooled all the way through. It wouldn't be worth it, to have to give away all the freedom and flexibility we've enjoyed. Not to mention, those (special ed teacher recommended) "mental health breaks" for the boy, and the off season family vacations for all the rest of us.