Exchange rate list operations should be implemented in core, not in a plugin. Using exchange rate list operations should not be allowed to all users. E.g. only committee members or Peerplays network administrators may use them. However, handling exchange rates as proposals, and waiting for network members to vote, may not be the best solution, as the circumstances might require that exchange rate becomes active immediately, to prevent network misuse, or pulling funds on unfair conditions (e.g. when currency value variations are too high, or a lot of users start pulling funds out of the network).