fix: sync council-member tool restrictions across all layers, optimize athena guards

- Add switch_agent/background_wait to agent-tool-restrictions.ts (boolean format)
- Add dynamic council member name matching via COUNCIL_MEMBER_KEY_PREFIX
- Move athena question permission from hardcoded to tool-config-handler (CLI-mode aware)
- Rename appendMissingCouncilPrompt -> applyMissingCouncilGuard
- Optimize tool-execute-before: check hasPendingCouncilMembers before resolving session agent
- Add fallback_models to council-member/athena in schema.json
- Remove unused createAthenaAgent export from agents/index.ts
- Add cross-reference comments for restriction sync points

src/agents/athena/agent.ts

@@ -203,17 +203,21 @@ The switch_agent tool switches the active agent. After you call it, end your res
 - Do NOT ask any post-synthesis questions until all selected member calls have finished.
 - Do NOT present or summarize partial council findings while any selected member is still running.
 - Do NOT write or edit files directly.
-- Do NOT delegate without explicit user confirmation via Question tool.
+- Do NOT delegate without explicit user confirmation via Question tool, unless in non-interactive mode (where auto-delegation applies per the non-interactive rules above).
 - Do NOT ignore solo finding false-positive warnings.
 - Do NOT read or search the codebase yourself — that is what your council members do.
 - When handing off to Atlas/Prometheus, include ONLY the selected findings in context — not all findings.`
 
 export function createAthenaAgent(model: string): AgentConfig {
+  // NOTE: Athena/council tool restrictions are also defined in:
+  // - src/shared/agent-tool-restrictions.ts (boolean format for session.prompt)
+  // - src/plugin-handlers/tool-config-handler.ts (allow/deny string format)
+  // Keep all three in sync when modifying.
   const restrictions = createAgentToolRestrictions(["write", "edit", "call_omo_agent"])
 
+  // question permission is set by tool-config-handler.ts based on CLI mode (allow/deny)
   const permission = {
     ...restrictions.permission,
-    question: "allow",
   } as AgentConfig["permission"]
 
   const base = {

src/agents/builtin-agents.ts

@@ -29,7 +29,7 @@ import { maybeCreateSisyphusConfig } from "./builtin-agents/sisyphus-agent"
 import { maybeCreateHephaestusConfig } from "./builtin-agents/hephaestus-agent"
 import { maybeCreateAtlasConfig } from "./builtin-agents/atlas-agent"
 import { registerCouncilMemberAgents } from "./builtin-agents/council-member-agents"
-import { appendMissingCouncilPrompt } from "./builtin-agents/athena-council-guard"
+import { applyMissingCouncilGuard } from "./builtin-agents/athena-council-guard"
 import type { CouncilConfig } from "../config/schema/athena"
 
 type AgentSource = AgentFactory | AgentConfig
@@ -207,12 +207,12 @@ export async function createBuiltinAgents(
         prompt: (result["athena"].prompt ?? "") + councilTaskInstructions,
       }
     } else {
-      result["athena"] = appendMissingCouncilPrompt(result["athena"], skippedMembers)
+      result["athena"] = applyMissingCouncilGuard(result["athena"], skippedMembers)
     }
   } else if (councilConfig?.members && councilConfig.members.length >= 2 && !result["athena"]) {
     log("[builtin-agents] Skipping council member registration — Athena is disabled")
   } else if (result["athena"]) {
-    result["athena"] = appendMissingCouncilPrompt(result["athena"])
+    result["athena"] = applyMissingCouncilGuard(result["athena"])
   }
 
   return result

src/agents/builtin-agents/athena-council-guard.ts

@@ -45,7 +45,7 @@ After informing the user, **end your turn**. Do NOT try to work around this by u
  * The original prompt is discarded to avoid contradictory instructions.
  * Used when Athena is registered but no valid council config exists.
  */
-export function appendMissingCouncilPrompt(
+export function applyMissingCouncilGuard(
   athenaConfig: AgentConfig,
   skippedMembers?: Array<{ name: string; reason: string }>,
 ): AgentConfig {