It's possible that the house of dusk have abandoned the traditional Kell based government with a makeshift consensus
The house of dusk are constantly on the line of unorganized and unified at the same time. So it's possible that the leaders of the most powerful crews within the house came together to form a council?
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I myself highly doubt that the Council controls even half of House Dusk. Dusk has a huge power vacuum and is splitting up into so many groups. I think the Council could have a chance of being the biggest Dusk splinter group we’ve seen so far, but it probably wouldn’t even be drastically larger than the Kell’s Scourge or other splinter groups.
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I'm not too sure myself, all things considered we haven't really dealt any major blows to the fallen in the last 3 years
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That would make a lot of sense.