It's not misplaced. It might be to you, but it's not to me. :-) In all seriousness, there is no correct behavior by Unicode; there simply cannot be. A character set is a mapping; the collation is a locale-specific set of rules to sort the characters in that set -- and even within the same locale there can be multiple collations.
The ICU docs has colorful examples of how thorny this kind of stuff gets, in case you're curious. Quoting extensively:
http://userguide.icu-project.org/collation
[H]ere are some of the ways languages vary in ordering strings:
The letters A-Z can be sorted in a different order than in English. For example, in Lithuanian, "y" is sorted between "i" and "k".
Combinations of letters can be treated as if they were one letter. For example, in traditional Spanish "ch" is treated as a single letter, and sorted between "c" and "d".
Accented letters can be treated as minor variants of the unaccented letter. For example, "é" can be treated equivalent to "e".
Accented letters can be treated as distinct letters. For example, "Å" in Danish is treated as a separate letter that sorts just after "Z".
Unaccented letters that are considered distinct in one language can be indistinct in another. For example, the letters "v" and "w" are two different letters according to English. However, "v" and "w" are considered variant forms of the same letter in Swedish.
A letter can be treated as if it were two letters. For example, in traditional German "ä" is compared as if it were "ae".
Thai requires that the order of certain letters be reversed.
French requires that letters sorted with accents at the end of the string be sorted ahead of accents in the beginning of the string. For example, the word "côte" sorts before "coté" because the acute accent on the final "e" is more significant than the circumflex on the "o".
Sometimes lowercase letters sort before uppercase letters. The reverse is required in other situations. For example, lowercase letters are usually sorted before uppercase letters in English. Latvian letters are the exact opposite.
Even in the same language, different applications might require different sorting orders. For example, in German dictionaries, "öf" would come before "of". In phone books the situation is the exact opposite.
Sorting orders can change over time due to government regulations or new characters/scripts in Unicode.