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consul-data/raft/peers.info

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+
+As of Consul 0.7.0, the peers.json file is only used for recovery
+after an outage. The format of this file depends on what the server has
+configured for its Raft protocol version. Please see the agent configuration
+page at https://www.consul.io/docs/agent/options.html#_raft_protocol for more
+details about this parameter.
+
+For Raft protocol version 2 and earlier, this should be formatted as a JSON
+array containing the address and port of each Consul server in the cluster, like
+this:
+
+[
+  "10.1.0.1:8300",
+  "10.1.0.2:8300",
+  "10.1.0.3:8300"
+]
+
+For Raft protocol version 3 and later, this should be formatted as a JSON
+array containing the node ID, address:port, and suffrage information of each
+Consul server in the cluster, like this:
+
+[
+  {
+    "id": "adf4238a-882b-9ddc-4a9d-5b6758e4159e",
+    "address": "10.1.0.1:8300",
+    "non_voter": false
+  },
+  {
+    "id": "8b6dda82-3103-11e7-93ae-92361f002671",
+    "address": "10.1.0.2:8300",
+    "non_voter": false
+  },
+  {
+    "id": "97e17742-3103-11e7-93ae-92361f002671",
+    "address": "10.1.0.3:8300",
+    "non_voter": false
+  }
+]
+
+The "id" field is the node ID of the server. This can be found in the logs when
+the server starts up, or in the "node-id" file inside the server's data
+directory.
+
+The "address" field is the address and port of the server.
+
+The "non_voter" field controls whether the server is a non-voter, which is used
+in some advanced Autopilot configurations, please see
+https://www.consul.io/docs/guides/autopilot.html for more information. If
+"non_voter" is omitted it will default to false, which is typical for most
+clusters.
+
+Under normal operation, the peers.json file will not be present.
+
+When Consul starts for the first time, it will create this peers.info file and
+delete any existing peers.json file so that recovery doesn't occur on the first
+startup.
+
+Once this peers.info file is present, any peers.json file will be ingested at
+startup, and will set the Raft peer configuration manually to recover from an
+outage. It's crucial that all servers in the cluster are shut down before
+creating the peers.json file, and that all servers receive the same
+configuration. Once the peers.json file is successfully ingested and applied, it
+will be deleted.
+
+Please see https://www.consul.io/docs/guides/outage.html for more information.