The pluginloader plugin automatically loads ["action"] and ["page"]
plugins, whenever necessary. This allows to skip dozens of
include() statements within the config.php (which most always just
slow down script startup). It is configured via a static array,
that defines which plugins are allowed to be automatically invoked
on request.
Detailed explanaition is available within this script.
prev << "spages (StaticPages)"
next >> "init"

You cannot modify the README.plugins file, but anyhow any ideas or suggestion should as usually get filed on BugReports, UserSuggestions or even better the README.plugins.Discussion.