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Under D Element Syntax Summary (Non-Normative), under xsl:fallback, we say under "Permitted parent elements": "any XSLT element whose content model is sequence constructor" But xsl:fallback is also allowed in xsl:analyze-string, xsl:merge, xsl:next-match, xsl:evaluate and perhaps there are others that have no sequence constructor, but do allow xsl:fallback under its children.
Thanks, I have fixed this editorially. (I should really auto-generate this stuff, currently the information is held redundantly in the element syntax file).