Sound counsel isn't government, and what you describe as 'a council of elders' isn't government. When I take advice it is I that govern, by choosing to execute the advice. That is the only form of government that is potentially just.
The 'sometimes more' is not reassuring, but ominous. I am willing to follow just laws, but am not willing to follow unjust orders. Any orders given sovereigns are unjust. Advice is lawful, but 'sometimes more' is criminal.