What do you mean, without a mandate? If the GR passes with a landslide, woudn't that be a mandate?
Maybe, maybe not. Perhaps the landslide just means people don't want to loudly proclaim Debian's support of non-free software anymore?
Would you be happy if Branden added a clause along the lines of:
Further, the acceptance of the GR is not intended as a mandate to actually remove the non-free or contrib sections of our FTP archive.
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