I forgot to add something concerning something I read in this earlier.
In a council such as this, I would begin to think that unbiased opinions are more valuable then a bunch of people fighting over something. In what conversations I have read (and I must admit, I got lazy and skipped like.. most of the pages.), it appears a few people are too close to the topics being discussed to be useful. It is easy to tell this because those who aren't close to the topic will not get vehement, while those who are too close, will.
If a limitation is set, Kage appointment (hell, even Kage involvement) is not exactly a good idea, in my opinion. There would need to be a way to select people who are not too close to the topics needing to be discussed.
So, I offer a different solution. Perhaps a flexible limitation.
There will be a bank of ~30 people who are all "Councilmen and women." However, whenever a new topic is discussed, only a handful of people (perhaps 9-11 or fewer) will participate. These people will be chosen at random; drawn out of a hat. This would keep results of discussion fair because at this point, the council is made up of a small amount of people who were drawn, randomly, out of a larger body of people. In this instance, there would have to be a few people who would be chosen to preside over discussion; I would suggest the village leaders, the moderators who wish to participate, or simply electing one person whom nobody likes.
--> I'd like to add that I am simply offering solutions to the problem at hand. Attacking me for these ideas would be both silly and rude. Thank you and g'day.