From Black's Law Dictionary:

The word "may" must be read in context to determine if it means an act is optional or mandatory, for it may be an imperative. The same careful analysis must be made of the word "shall." Non-lawyers tend to see the word "may" and think they have a choice or are excused from complying with some statutory provision or regulation.

When the "may" statement follows a "shall" statement the "may" becomes manditory.

In the case of Council 77 to allow the most members to attend and have a voice or UNITY the meeting shall (reading the context of the statement) be split.