Well, IMO you're swapping reason and effect here. From my point of view, we had difficulties to gain more than five candidates, *because* we're not self-governed entity, = Council doesn't have (almost) any real tools, at least in current approach. Even description of "what Council is meant for" are - most of the times - quite "philosophical", instead of practical.
At the same time, negative "emotions" are thrown on Council every time something isn't as it should be - no matter if Council had chance to change that, or not. Thus, no surprise, that not many people want to take up that volunteer role.
The problem is, that You can't be half-virgin, half-pregnant.