How about, instead of limiting this council to 2 Bs and 2 unfactionalised players, with a Bs tiebreaker (which, incidentally, means that Bs can force through anything, because they have the 3:2 majority...), give each faction and independant a representative in a similar fashion to the Zoner Council.
We already have an Order Roster, so it should not be too hard to determine who has the "right" to debate these matters, and, by restricting the factions to only having one member, there is no implication of bias.
However, as a player faction, do you really need to concern yourself with the actions of non-factionalised players? Their actions should not reflect on your faction, and, if people complain about them to you, you can reply that you have no control over them. What you are doing, tho, seems to be an attempt to gain control over all the non-facionalised Order members, and this will result in any actions taken by said "independants" to be viewed as the actions of your faction.
Also, if you intend to restrict access to Liberty, what about the other houses? The Order's remit is similar to that of the LSF, ie: information gathering across the sector, as well as holding back the Nomad invasions.
If you want the Bs to be a fighter wing concerned with shooting Nomads attempting to reach the rest of humanity, that is fine and dandy. However, if someone wants to RP an Osiris which runs all over Sirius collecting data and searching for potential threats of infestation, this also fits within the duties of The Order, and, yes, if they try to do said activities in Liberty, they are likely to be hunted as terrorists.