My basic idea about Dunedain and Noldor is that they shouldn't have any "low-range" attributes.
We know that, in Rhovanion, the cultures had the 5-7/4-6/2-4 (or the like) division of attributes. I think those two special cultures should have no 2-4 range attributes. Maybe one 5-7 and two 4-6.
I'm not entirely sure if they should also have some more starting points for the common skills, weapons or two increases for Valour/Wisdom instead of only one. Any (but maybe not all) of this could be acceptable for me.
I can see Virtues like Light of Valinor or Heir of Numenor, which could increase the power (Awe, Persuade, fighting power against Shadow servants,...) of the heroes.
But regarding the downside of this cultures, I have many doubts of how it could come into play. A guess would be for Noldor to have low Hope scores: they are already tired of fighting the Evil along the Ages, and consider Sauron a matter for Humans. Most of them prefer to counsel other races, to hide in Rivendell or Lorien, or to plainly sail West.
As for the Dunedain, we know that they are the race most hated by Sauron, and therefore the most prosecuted. They have to hide their power and majesty (in a way similar to that of the Istar) to avoid being discovered and hunted down to the death by Sauron's creatures and minions. Here, I think, the rules for the Eye of Sauron can help a lot balancing the Dunedain culture (and also the Noldo, probably).
As for rules for not having a party entirely of Noldo or Dunedain, well, I don't know. I don't think rules for this are necessary. I wouldn't allow a party of only Hobbits travelling the Wilderland, and there are no rules against it in the Core Book. But I don't feel I need them. And then again, maybe someday I would like to make a mini-campaign using the Hobbits from the Easterly Inn as the heroes, and I wouldn't like to have a rule that forbid it.
I like to let my mind go in these forums
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