The Shanutar is a council of lords composed of a pair of shan from each of the armies that make up the zaeltairn, plus each of the tar-shan that lead the zaelantar. The Keepers of the Past do not have a vote on the council but are important advisors. Meetings take place in the Hall of Memories, the only dedicated temple to the Spirits of the Past, in Var-Shaelas.
When the Tairnadal are confronted with an issue that requires a response from the entire nation, such as the periodic dragon attacks, the Shanutar is consulted. Decisions are made through form of iterated consensus voting. For an army to propose a motion both of their representative shan must agree. Then, the issue is brought to the broader collective the army is a member of (e.g. the Valaes Tairn). Once consensus is reached there an issue is brought up amongst the collective zaeltairn, who after consensus forward the issue to the collective tar-shans of the zaelantar.
If the zaeltairn and zaelantar agree the issue is decided and enacted upon. The process is similar for motions proposed by a tar-shan of the zaelantar - the zaelantar must come to a consensus before forwarding the issue to the zaeltairn, who then must come to a consensus to pass the motion. The reliance on consensus decision making means that despite the martial culture, the Tairnadal are slow to act collectively. Issues have received decades of continuous debate before a decision is made - the long lifespan of the elves certainly contributes to this stagnation, as leaders can hold positions of authority for centuries. Only direct threats to the homeland can inspire quick action, and even then, the council may take time.