The Council of Elders was a group consisting of the theocratic leaders of the Air Nomads. Each of the air temples had its own council of High Monks or High Sisters, their members being both the political and the religious authorities.
The Northern and Southern councils were composed of five high monks each, and the Eastern and Western councils were composed of five high sisters each. They were the only ones allowed to enter the air sanctuary in each air temple, other than the Avatar. They were also the ones responsible for identifying the Avatar when he or she was born into the Air Nomads.
Council of Elders
Air Nomad Council
Head of State and Government: Two Councils of Monks (one Northern and one Southern) and two Councils of Sisters (one Eastern and one Western)
Spiritual Authority: Two Councils of Monks (one Northern and one Southern) and two Councils of Sisters (one Eastern and one Western)