the right way to say no factions can build that level? maybe its reading that as all factions?
I believe the right way is

temple_of_governors_pantheon

nothing added in front of it, because there are other temples like that. I checked it when I made the changes.
My mistake, I pasted after making some changes to try and see if it would work.
Here is the "correct" one:

}
building temple_of_governors
{
levels temple_of_governors_shrine temple_of_governors_temple temple_of_governors_large_temple temple_of_governors_awesome_temple temple_of_governors_pantheon
{
temple_of_governors_shrine requires factions { pontus, macedon, }
{
capability
{
happiness_bonus bonus 1
law_bonus bonus 1
}
construction 1
cost 400
settlement_min town
upgrades
{
temple_of_governors_temple
}
}
temple_of_governors_temple requires factions { pontus, macedon, }
{
capability
{
happiness_bonus bonus 2
law_bonus bonus 2
}
construction 2
cost 800
settlement_min large_town
upgrades
{
temple_of_governors_large_temple
}
}
temple_of_governors_large_temple requires factions { pontus, macedon, }
{
capability
{
happiness_bonus bonus 3
law_bonus bonus 3
}
construction 3
cost 1600
settlement_min city
upgrades
{
temple_of_governors_awesome_temple
}
}
temple_of_governors_awesome_temple requires factions { pontus, }
{
capability
{
happiness_bonus bonus 4
law_bonus bonus 4
}
construction 5
cost 3200
settlement_min large_city
upgrades
{
temple_of_governors_pantheon
}
}
temple_of_governors_pantheon
{
capability
{
happiness_bonus bonus 5
law_bonus bonus 5
farming_level bonus 2
recruits_exp_bonus bonus 2
weapon_missile bonus 2
}
construction 6
cost 6400
settlement_min huge_city
upgrades
{
}
}