I disagree.
Should drivers be required to carry their driver's license while driving?
Should stores be required to not charge extra for credit cards over cash?
Should employers be required to pay for a woman's contraception coverage?
In each of those three sentences, "should" as the first word is setting up a question, it is posing a hypothetical. The answer can be "Yes, drivers or stores or employers should", or "No, drivers or stores or employers should not".