So, if I'm reading this right, it seems that when War Declaration is set to "Council", contentedness is the limiting factor for when councilors can start factions. When it is set to "Ruler", there is no limiting factor. Odd choice, must have had something to do with balancing, I guess? This really should be made clearer. Also, this makes factions that increase the power of the council counterproductive; I successfully forced my liege to increase council power through a faction demand when I was on the council, and as far as I can tell the law that was changed as a result was "War Declaration". So, no factions for us anymore. Which means the council has functionally taken a step backwards in power. I'm glad I didn't have to go to war for that one.