11.7 clarifies how to judge a rules dispute if an Emperor is directly involved. 11.1 spells out, sorta, how to arbitrate a disputed succession.
They cover two different areas.
As for the high numbers of CAs, I think that was a product of the succession controversy and not a trend. I think we're good. If we capped Edicts and CAs, someone could spam a few to block someone else's proposals.
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