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/shared/agent-tool-restrictions.ts

@@ -6,6 +6,8 @@ import { stripInvisibleAgentCharacters } from "./agent-display-names"
  * true = tool allowed, false = tool denied.
  */
 
+import { COUNCIL_MEMBER_KEY_PREFIX } from "../agents/builtin-agents/council-member-agents"
+
 const EXPLORATION_AGENT_DENYLIST: Record<string, boolean> = {
   write: false,
   edit: false,
@@ -51,11 +53,18 @@ const AGENT_RESTRICTIONS: Record<string, Record<string, boolean>> = {
     call_omo_agent: false,
   },
 
+  // NOTE: Athena/council tool restrictions are also defined in:
+  // - src/agents/athena/agent.ts (AgentConfig permission format)
+  // - src/agents/athena/council-member-agent.ts (AgentConfig permission format)
+  // - src/plugin-handlers/tool-config-handler.ts (allow/deny string format)
+  // Keep all three in sync when modifying.
   "council-member": {
     write: false,
     edit: false,
     task: false,
     call_omo_agent: false,
+    switch_agent: false,
+    background_wait: false,
   },
 }
 
@@ -63,6 +72,10 @@ export function getAgentToolRestrictions(agentName: string): Record<string, bool
   // Custom/unknown agents get no restrictions (empty object), matching Claude Code's
   // trust model where project-registered agents retain full tool access including bash.
   const stripped = stripInvisibleAgentCharacters(agentName)
+  if (stripped.startsWith(COUNCIL_MEMBER_KEY_PREFIX)) {
+    return AGENT_RESTRICTIONS["council-member"] ?? {}
+  }
+
   return AGENT_RESTRICTIONS[stripped]
     ?? Object.entries(AGENT_RESTRICTIONS).find(([key]) => key.toLowerCase() === stripped.toLowerCase())?.[1]
     ?? {}