The Teeth as an organization have benefited from the knowledge of previous holders of the Butcher's powers. Specifically, the few Heroes that have killed a previous Butcher.
The
visible portion of the Teeth appears to be a small number of cells. Boston, New York, a roving cell or two. Large enough to be a threat, small enough to be largely left alone.
The
support portion of the Teeth is a much larger network of cells, spread all over the country. These cells do information gathering, recruiting, training, etc, all under banners that are
not the Teeth. They do not act like the
visible cells and in many cases are apparently operating in direct opposition to at least one other cell.
Each cell has a non-Butcher leader that oversees things day to day. Even the ones that operate as "the Teeth". These leaders form the Council. Under normal circumstances the Butcher is the overall leader. Their word is law. Their word set this entire system up, in fact. The Council exists to serve the Butcher.
But, to the Teeth, having the Butcher's powers does not make someone the Butcher.
In the event that there is no recognized Butcher for any reason, the Council is to maintain the status quo to the best of their abilities and be ready to acknowledge or test the next Butcher. They are not empowered to do anything else.
To be recognized as the Butcher by the Teeth you need to gain the Butcher's powers in the correct way, or otherwise get the approval of the previous Butchers
and pass the Council's test.
Proper ways to gain the Butcher's powers include:
- Challenging the leadership of the current Butcher and winning
- Delivering the killing blow on a crazed not-Butcher
- Being challenged by the current Butcher and winning
But just because you
are the Butcher doesn't mean that you will
remain the Butcher. You can lose the respect of the Council, or the respect of the previous Butchers. Generally losing the respect of one will cause you to lose the respect of both. Examples of things that will cause you to lose respect:
- Managing the Teeth so poorly as to start causing the entire organization problems
- Refusing to accept challenges for leadership by others after your first year, though challenges have their own rules and you won't get in trouble for refusing to accept those that don't follow those rules
- Issuing challenges in excess as an excuse to kill members of the Teeth
- Being humiliated to the point where the Teeth can no longer respect you
In the event that you need to earn the respect of the Council, and through them the final respect needed from the previous Butchers, you will be tested. How difficult the test is will reflect how liked you are by the council. As an example, if the Council
really dislikes you they can, in fact, decide that your test is to kill an Endbringer.
In the case of Quarrel, the Council has provided a list of three parahumans, and only one of them has to be challenged to a fair fight that Quarrel has to win. There is a time limit, but concessions have been made for circumstances outside of Quarrel's control. The time limit is reasonable, the list does not appear to contain parahumans that should give too much trouble. It is, in fact, a test of 'can you still fight?' more than anything else, as Quarrel has been a decent Butcher up until the incident with the Nine. If the answer is yes then Quarrel will be recognized as the Butcher once more. If the answer is no then Quarrel will either be dead, or will have lost the final chance that the previous Butchers are offering and be driven insane.
That the Council has basically set up a situation where the victor of the fight between Quarrel and her chosen target would, by their own rules, be recognized as the Butcher is an entirely different issue. One that has not come up before, because in a situation like this no Butcher has
lost before, and they keep getting more dangerous.