Re: [w3c/manifest] Shortcut_items uses manifest_url when it should use start_url (#1003)

https://www.w3.org/TR/appmanifest/#processing-shortcut-items states:
> If url is not within scope of manifest URL, return failure.

I'm not sure what "scope of manifest URL" means when the manifest URL is not within the app's navigation scope, or even in the same origin. I think this needs to be clarified or edited.

Reddit's manifest is a current example of this issue. 
The manifest URL is: https://www.redditstatic.com/desktop2x/img/favicon/manifest.json?v=2
It has shortcuts written in a way that assume the shortcut URLs are relative to the app scope. In Chrome, they are resolved with the manifest URL's origin, then checked against navigation scope. This causes a "property 'url' ignored, should be within scope of the manifest" parsing error, causing the shortcuts to be ignored. 

```
{
      "name": "All",
      "short_name": "All",
      "url": "/r/all",
      "icons": [{ "src": "./shortcuts/icon_all_fill.png", "sizes": "192x192" }]
}
```

If this is the expected behavior, is it implicitly saying that shortcuts only work when the manifest URL is within navigation scope? 

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