The idea is still in the very, very early stages, so we haven't gotten things like this officially worked out yet. One of the things we had tossed around, though, was having a kind of vote. I understand that this often becomes a 'popularity contest' rather than a vote of skills, and we would want to avoid that. Also, we would steer clear of RPing strictly by level, but often the established RPers who have been around the block will be max level by simple merit of them having played the game long enough.
This is another issue we're going to want to address. The idea for the council is mostly to organize RP events and bring RPers together, without giving them much real OOC power, if any. I think that would help solve the problem. And no one is requiring any RPer to acknowledge the Council in any way: If they want to RP as though the group doesn't exist, they are welcome to do so.
Basically, the idea is a fundamental separation of OOC and IC that all RPers should be capable of.