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I say it is #1 the fault of the so-called guardian of the child -- it is not like a dog came from no where and attacked the child and there were people around to try to stop it (as in the case of Willow). This child was found on the road.
It is also the fault of the town that hasn't fixed the chronic problem of stray dogs. Suppose an elderly or feeble (physically or mentally) person was just taking a walk and was attacked? If they know about a problem, they need to take some serious steps to rid the area of the stray dogs. If that means putting the aggressive animals down, so be it.
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