is
temple_of_governors_pantheon requires factions { }
the right way to say no factions can build that level? maybe its reading that as all factions?

I've seen that written elsewhere as
temple_of_governors_pantheon requires factions { , }

Also, the line the error points to, its the last line on the EDB.
If the above doesn't work - you can sometimes get really weird EDB errors if you've made changes to resources / things Carthaginian's can build without fixing their look up first, and haven't deleted your map.rwm