A requester sends a CSR stuffed with subject fields, SANs and extensions. How much of that lands in the certificate? In goca: none of it, unless a template says so.
The guiding rule: the CSR is a key carrier, not a content authority. Every subject field, SAN and extension in the final certificate comes from the template, drawing from declared sources with fixed precedence: fixed (the template's own value — always wins) → ra (trusted attributes supplied by a registered RA, outside the CSR) → csr (only where the template explicitly allows it). Anything the CSR contains that the template doesn't source is ignored — not negotiated, not warned about downstream: ignored.
This inversion is the whole security model of certificate content. The requester proves possession of a key; what gets asserted about that key is your policy's decision, written down once, versioned, and enforced identically on every channel.
Now I can say who decides what goes in a certificate — and it isn't the CSR.