Boards of Directors have different functions, often based on the size of the organization.
In larger organizations, the primary function of a board is to raise money. In medium sized groups, the primary function is to make leadership decisions. In smaller groups, the primary function is to provide volunteer service to the organization.
The same pattern often applies to congregation councils. In the largest congregations, the council raises money since the staff makes most decisions. In medium sized congregations, the council makes major decisions for the group. In smaller congregations, the council members are the primary workers in the congregation.
Organizations are most effective when the role of the leadership group is consistent with the size of the organization.