The Bible is quite plain spoken that Christ is the head of the church. The church belongs to Him, it is built upon faith in Him, and it is dependent upon Him for its success. It is also true that the Lord has delegated certain leadership roles within the church to His people.
There are some people who believe the pastor ought to simply stick to preaching and let others handle all business matters of the church. However, it is not difficult to see that the Bible teaches that the pastor is responsible for the entire program of the church. Pastors actually have a three-fold job: preaching/teaching, pastoral care (counseling, visiting, etc.), and administrating (directing the ministries of the church). It has been said that the pastor is to be a servant leader. It also is pretty evident that God gives pastors a certain vision for where the church needs to go and a burden to take it there.
Deacons are the servants of the church in physical matters. That is not to say that deacons are the business managers, but they are certainly frontline servants in carrying out physical ministries. The earliest glimpse of these special servants had to do with the distribution of the early church’s food ministry. Therefore, deacons should certainly be able to deal with a needy person who stops by the church looking for help. Deacons should be frontline helpers in hospital and homebound ministries, as well. Because of the circuit riding preachers, the rapid turnover of pastors in many churches, and the past history of churches that did not meet every week, deacons have by necessity often filled a vacuum of needed leadership and have become somewhat of a ruling board; however, this is not the biblical model of deacon ministry. The biblical model is to serve in the physical ministries of the Lord’s work through the local church.
Details of many decisions should be worked out in behind closed doors meetings of committees. In confidence, these committee members need to discuss the pros and cons of an action that is being considered, and with the guidance of the pastor, who is an ex-officio member (has a voice, but not a vote) of every committee in the church, should make a recommendation to the congregation concerning the considered action.
The congregation has the final say. This is not to say that everything needs to come to the attention of the entire congregation. An effective church should be structured in such a way that many things can be handled discretely by a grouop of people who have been delegated to handle such matters. The congregation needs to have trust in these delegated individuals. For instance, one large, city church has a group of delegated individuals for the purpose of acquiring available property. Property is purchased, then the congregation is informed that it has been purchased. They have learned that when the word gets out that the church is interested in it, the price goes up considerably, so these individuals are able to make such purchases on behalf of the church very discretely. The final say of the congregation should never be contrary to anything that the Lord has said, and when the vote has been taken, and the result is not contrary to what the Lord has said, the minority should acquiesce to the will of the majority.
Who runs the church? Jesus does, first and foremost, and under His authority, and according to His structure, we all do. And make no mistake about it, we will give an account to the Lord as to how we did it.