Intent at an individual scale I can believe. That just takes one misguided person. I can even imagine a school site going rogue.The person giving the shot allegedly told the kid to keep it secret. That's intent. How are they getting around the requirement for a doctor's prescription? They're intentionally ignoring State requirements because they want kids vaccinated. It's pretty straightforward, your just willing to look the other way because you believe everyone should be vaccinated.
A district wide conspiracy is completely different, because it requires the cooperation of hundreds or thousands of people- some of whom are in legal. Within that vast conspiracy, more than one person would realize that the district does not need to be on the losing side of a class action lawsuit by anti-vax families.