Public Bodies Bill [HL]

I am in more of a muddle now than I thought I was. Clause 11(1) proceeds on the basis that, "““the Minister considers it appropriate to proceed with the making of an order under sections 1 to 6””." That is the premise. If that is the premise, surely the Minister will have to lay a draft order and an explanatory document. If that is the position and there is no scope for discretion at that stage—because he or she has already made the determination that it is appropriate to proceed—I do not understand why it does not say ““shall”” or ““must””. It says ““must”” elsewhere and it seems to me that it is a situation where it is a ““must”” and not a ““may””. Maybe I have got it wrong.