As far as your first question goes, when the protocol was being negotiated, the communities weren't consulted. The protocol was negotiated strictly between the ministries of education and the Department of Canadian Heritage.
Next, once the protocol determines how the process will work, the action plan is created. In some cases, the province, through the ministry of education, will choose to review the board's strategic plan and, without asking the school board any questions, determine how best to help it, and all the other school boards. Those determinations then become the priorities laid out in the action plan.
Does the action plan reflect school boards' priorities? Far from it in many cases. The action plan has to go to Canadian Heritage, but, sometimes, that happens six months later. There's a problem when it comes to determining school boards' priorities for language and cultural education.