I am at a loss to find any other explanation for this.
Rhode Island does, however, offer a bright side for educators and job security. If you can make it past principal, you seem to be safe. Take Frances Gallo and Victor Capellán, two administrators overseeing a school district so small it only includes one high school, one middle school and a few elementary schools. Despite this high administrator to school ratio, even the most basic aspects of administration (such as scheduling substitutes) are routinely screwed up.
Gallo and Capellán admit the schools that they are responsible for are terrible, but they don't hold themselves responsible. If you can't guess who they do blame, you haven't following the education reform movement.
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