ASHINGTON, Nov. 26 — Children attending public schools deemed failing under a new federal law have to be offered transfers to better schools, regardless of whether those schools are already full, according to final regulations released today by the federal Education Department.The new regulations, which are more stringent than expected, could leave hundreds of districts scrambling for alternative places for children who want to transfer out of poorly functioning schools. The new regulations do not oblige school districts to adopt specific solutions. At a news conference here today, Education Department officials said that schools might consider signing contracts with...