There was a 1906 report written by a foreign service officer in the US embassy in St. Petersberg, that answers some of these questions. I found it at the following url: https://history.state.gov/historicaldocuments/frus1906p2/d409.

The relevant section that refers to these village councils is the following:
According to the law of 1870, the number of Jews in the village councils and in the councils of municipalities must not exceed one-third of the number of the Christian members of the said council. Mayors of villages must be Christians. According to the laws of 1890 and 1892, Jews can not take part in assemblies for election beyond the Jewish pale, and the same laws forbid them to hold office under the municipalities outside the pale. Furthermore, in courts of justice, whatever the religion of the plaintiff or defendant, there must be more Christians than Jews in the jury and the foreman of the jury must be a Christian.

So, it sounds like Jews could be on the village councils, but their number was limited.
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Michele Lock

Lak/Lok/Liak/Lock and Kalon/Kolon in Zagare/Joniskis/Gruzdziai, Lithuania
Lak/Lok/Liak/Lock in Plunge/Telsiai in Lithuania
Rabinowitz in Papile, Lithuania and Riga, Latvia
Trisinsky/Trushinsky/Sturisky and Leybman in Dotnuva, Lithuania
Olitsky in Alytus, Suwalki, Poland/Lithuania
Gutman/Goodman in Czestochowa, Poland
Lavine/Lev/Lew in Trenton, New Jersey and Lida/Vilna gub., Belarus