Ray Franz also spoke about how for something to change there had to be a two thirds majority.
So if there were 12 members of the gov. body at any one time and say seven voted for a change (or you could say new light on something), then because they did not have a two thirds majority ie eight members, then the change would not go through.
Over the years this seemed to have happened quite a lot. The majority may have wanted change but because of the two thirds majority rule many new ideas never got through.