TenderMatrix / Guides / Shall, will, should, may
Shall, will, should and may in an RFP: how teams classify them
In most RFPs, shall and must mark a binding requirement, should marks a preference that is usually scored, may grants permission, and will states intent or a future action. Teams type each as mandatory, desirable or informational. The convention is common, not universal, so the RFP's own definitions win.
What each word usually means
Requirement writing borrows from contract and systems-engineering practice. In that tradition, shall is a binding requirement, will is a statement of fact or intent, should is a goal or recommendation, and may is permission. Plain-language drafting often uses must where older style guides use shall, and means the same thing. Many RFPs follow none of this strictly, so look for a definitions section, or a sentence such as requirements marked mandatory are pass/fail, before you rely on the usual reading.
Who the sentence binds matters as much as the verb. The Contractor shall provide a service desk is work for you. The Authority shall provide access to the site binds the buyer, so it is an assumption to record, not a task to answer. The shall statement extraction page shows how TenderMatrix applies these conventions, cue by cue.
Classifying a sentence in five checks
- Find who is bound The bidder, the successful contractor or the buyer? Buyer duties are informational: record them as assumptions, not as work.
- Read the verb strength Shall, must, is required to and is mandatory are binding. Should, is expected to and preferred are desirable. May, optional and for information are informational.
- Look for a tag or flag A column headed M/D/O, Priority or MoSCoW, or a tag such as (M), settles the type and overrides the wording around it.
- Check for conditions If, where and unless clauses limit when a requirement applies. Keep the condition in Notes, and do not mark the row not applicable until you have read it.
- Check the definitions A glossary or instructions section can redefine the words. If it does, its definitions win over any convention.
Wording, usual reading and the type to record
Use the table as a starting point, not a ruling. The RFP's own words come first.
| Wording | Usual reading | Type to record | Watch for |
|---|---|---|---|
| shall, must, is required to | Binding on the named party | Mandatory | A buyer as the subject: record it as an assumption |
| shall not, must not | A binding prohibition | Mandatory | Easy to skip as not a requirement |
| will | Intent or a future action | Mandatory if the bidder will act, informational if the buyer will | Often binding in practice, so ask if it matters |
| should, is expected to, preferred | A preference, often scored | Desirable | Should the Contractor fail is a condition, not a preference |
| may, optional, for information | Permission or an option | Informational | May not usually means a prohibition |
| is encouraged, nice to have, ideally | A soft preference | Desirable | Check whether the evaluation section scores it |
| Describe, Explain, a question mark | A request for a written answer | Question | A shall in the same sentence makes it mandatory too |
What goes wrong with modal verbs
- Treating every should as optional. Where should rows are scored, an unanswered one is lost points. Mandatory vs desirable requirements covers what each type can cost.
- Counting buyer duties as your work. The Authority shall provide access creates a dependency, not a task.
- Missing obligations with no modal verb. Response time: 4 hours. Submit three copies. Bidders are to attend the briefing. Bare specifications and imperatives usually carry the same weight as a shall.
- Reading must as softer than shall. In plain-language drafting they are equal. If one RFP uses both, ask whether the buyer intends a difference.
- Ignoring the definitions section. Some RFPs say should means mandatory, or that will is binding.
- Losing the lead-in. A list under The Contractor shall: inherits the shall for every item, even when each item is a bare phrase.
The RFP shredding process shows where these sentences are found, and compliance matrix mistakes lists the ways they get missed.
How TenderMatrix helps
TenderMatrix applies this reading with a fixed cue list. Shall, must and required to become Mandatory, should and preferred become Desirable, may and optional become Informational, and questions become Question rows. Each row shows the word that decided it, so a reviewer can see why a row was typed that way and change it in the downloaded file. It does not read a definitions section, and wording with no modal verb can be missed, so check the RFP's own definitions and its bare specifications. Try it on the RFP to Excel page. Free: 1 file per day, up to 10 pages, no account. Files over 10 pages are converted up to page 10 on the free allowance; a page code converts the whole file, up to 150 pages. See pricing.
Questions bid teams ask
Is must stronger than shall?
In plain-language drafting they are treated as equal: both create an obligation. Older style guides prefer shall and newer ones prefer must. If one RFP uses both, ask the buyer whether a difference is intended.
Does will ever mean mandatory?
It can. Systems-engineering convention says will states a fact or intent, but The Contractor will provide weekly reports reads as a commitment. Treat it as mandatory when the bidder is the subject and an action follows, and ask if the stakes are high.
Is should ever mandatory?
Only if the RFP says so, for example in a definitions section or an instruction that all requirements must be met however they are worded. Otherwise should is desirable. It is often scored, so answer it.
What does may not mean in an RFP?
Usually a prohibition, as in Bidders may not contact evaluators. Occasionally it means might not. Read the sentence in context and, if the stakes are high, ask in the clarification window.
How do I handle a requirement with no modal verb?
Treat bare specifications and imperatives as requirements. Delivery within 30 days and Submit three copies usually bind the bidder. Read specification sections, forms and instructions line by line, because keyword searches miss them.
Should I record the buyer's own obligations?
Yes, as informational rows. The Authority will provide access within 10 days is an assumption your plan depends on. Keeping it visible lets you raise it if the buyer's side slips.
Do all buyers use these words the same way?
No. Conventions vary by country, buyer and drafting style. Public-sector buyers often define terms in the instructions, and private buyers may use the words loosely. The RFP's own definitions outrank any general convention.