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There was not enough in the article about the school system in Rhode Island to make any conclusion as to the cause of failure.  The union may have been very interested in improving the situation, but the solution offered by the administrator may have been a ridiculous one if the actual circumstances were known.  Only one side of a many faceted situation was stated.  I have seen many ridiculous "solutions" offered by administrators that never address the problem.  Nevertheless, one would have to visit that school to know what was really going on.