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Currently how the shell's configuration gets into the corresponding ConfigAdmins in the kernel and the user regions is a Virgo implementation detail. With some more post-processing it is possible to have all shell configurations for every region in a single configuration file.
I think we should avoid conflating kernel and user region configuration in the same properties file as this would complicate the way the properties are specified in order to avoid them clashing. Eventually, I would expect both kernel and user region shells to be disabled by default. Most users would then be interested in enabling just the user region shell and they would be able to ignore the kernel shell configuration.
Having in mind the possibility of even more regions in future I agree that such file will grow to be quite confusing in the end. A file per region sounds good and will be quite clear from user perspective when it is documented properly.