What is the meaning of 'is to be' in the following sentence and in similar cases?
We cannot set up in any detail an ideal of character which is to be universally applicable.
I wasn't able to find its meaning in OALD.
[UPDATE]
longer context:
But although we cannot set up in any detail an ideal of character which is to be universally applicable—although we cannot say, for instance, that all men ought to be industrious, or self-sacrificing, or fond of music—there are some broad principles which can be used to guide our estimates as to what is possible or desirable.