Quick reply...

I would say that in this analogy "golf-club" is e.V., "golfers" are "active members", "pedestrians living here" are community (and elect city council), "tourists from afar" are anonymous guests.

But, I will not insist on the applicability of this analogy, because, as you pointed out:
1. members of e.V. do not have to pay fees;
2. Board has no way to decline a valid request to become an active member.

Parts of the problem (imho) are:
1. e.V. is, so far, too small - more active members needed, and that should somehow be _representative_ sample of the community;
Time is needed, as well as attention of passive members, to hopefully get e.V. to be large enough.
2. Board is also too small, so far. Council has to be 5-member, at least; but even Council is 3-member, at this moment; and board is currently 2-member?

Board: three or more natural persons at least 21 years of age.
Board shall designate a chair and two Deputy Directors. Any two of these three Board members together are authorized to fully represent the association.
Board executes the Council's and General Assembly's rulings...

In short: I have no reason to not trust the Board, but eV is not going to be representative of community on the whole with current rate of 'recruitment' of active members. They are already suffering paper backlog (that's holidays, but applicants will also be much more active after holidays - hopefully), without taking on Council duties; we shouldn't be expecting the Board to take over Council duties, too.

By the way, did anybody notice that "active members" are expected to meet and speak and discuss agenda of the meeting? ;-) That's why they are called "active members" :-)

General Assembly is called once per year by the Council... General Assembly is presided by the Council or a deputy...
General Assembly has to be called as well if it is mandated by the association's interests , or if at least one third of the active members request so... giving its purpose and reasons...
General Assembly... is accepted as able to make decisions if at least one third of the active members are present...

In parallel:
Passive Members' Meeting is called twice per year by the Council... presided by the Council or a deputy...
Passive Members' Meeting has to be called as well if it is mandated by the association's interests or if requested by single majority vote of the Council and written purpose and reason are given...
Passive Members' Meeting... is accepted as able to make decisions if at least 10 passive association members are present...

In short: Council duties are not something to pass on to Board, as if the duties were light as a feather. I find a certain beauty in the intertwining net of passive-active members, Board and Council. Reducing it to something smaller would have been "too simple".

And, apologies for not attending the latest Council meeting: for me it was early morning of the troublesome day that is New Year's Eve.

[I'm not getting enough sleep as it is, and New Year's celebrations mean additional loss of sleep... Well, at least, there's something to remember: fireworks. But I expect Gandalf would have made them much better than the common mushrooms of random colors...]

Best wishes.
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Per aspera ad astra...