Decisions were made by popular assemblies. Local issues were decided upon at these group meetings. It was the symbol of authority, something like the minister's liturgical stole today. The assembly or congregation was an ancient institution. Apparently it was an innovaton by Israel.
Parallels are unknown in the Canaanite city-states.
In peasant Israel, popular participation was important to political decision-making. However, much later during the monarchy, they assemblies disappeared from national life. Furthermore, the tribes had only a loose connection among themselves. They formed a kind of confederacy based on a common belief in Yahweh. There is no evidence of a central political or religious council composed of representatives of the various tribes.