The passage gives two ways to impliment reform near the end of the passage that I thought would count as offering solutions to the problem like answer choice E describes.
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This passage actually doesn't propose a solution to any issue. It simply describes and brings to light two recent developments that may help the issue over time. In order for answer choice E to be correct, the passage itself would have to propose these solutions and discuss it in further depth.
Answer choice D is correct because the passage describes a problem that hasn't been addressed (lines 41-43) and it provides a historical analysis, namely why and how this became a problem over time in lines 28-40.
I hope this helps. Please let me know if you have any other questions.