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Black's 4th Definition of "Shall"
Shall [from Black's 4th]:
"As used in statutes, contracts, or the like, this word is generally imperative or mandatory.
BUT IT MAY be construed as merely permissive or directory, (as equivalent to "may,") to carry out the legislative intention and in cases where no right or benefit to any one depends on its being taken in the imperative sense, and where no public or private right is impaired by its interpretation in the other sense.
Although the word usually denotes an obligation, it also implies an element of futurity."
[Emphasis in all-caps mine]
If, by the way, this inconsistency frustrates you, go to page 5 on the citizenship/jurisdiction cites thread and read my response to "Does it matter what they say?".
Sincerely,
truth
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