Newspapers are always full of headlines that are misleading, or ambiguous, or have multiple readings which are contradictory or confusing.
Consider this one:
Tenants must consent to smart meters under new rules
Did you read that as "Tenants are forced to give their consent when the landlord installs smart meters"? That's how I read it. Nope, turns out "Tenants consent must be obtained by the landlord before smart meters can be installed".