"Shall issue" is not the criteria. If your state recognizes the UT permit, you must have your home state's permit first.
For example, Texas and Nevada are both "shall issue" states.
A TX resident must get a TX permit before he is eligible for a UT permit. TX recognizes the UT permit, and they don't want Texans carrying in TX with only a UT permit.
A NV resident is not required to get a NV permit before getting a UT permit because NV doesn't recognize the UT permit anyway.
Since VA does recognize the UT permit, this does not effect a difference for your VA audience, as yes, they will need their VA permit in hand before they can send in the UT application.