What does Will of the Council do with 2 Players?
The card itself states what to do in the case of a tie. In the example of Council's Judgement, it says "or tied for the most votes". This means that if 2 different permanents gets 1 vote each, then both of them will be exiled because they both are tied for the most votes.

This is not only an issue in 2 players, but could occur with any number of players.