I have a story about how it all works.
Brother H was a pioneer, elder and gave talks on the conventions and assemblies. He was a very polished speaker and very zealous for the truth. He would move to congregations where there was a need for elders. He was in our little congregation and was moving on to another after being there for a couple of years.
The remaining elder body consisted of two older brothers and they would not give brother H a recommendation letter to serve. It turns out that brother H was taking advantage of some of the older brothers and sisters financially to enrich himself.
The circuit overseer was good buddies with brother H and came specially to meet with the two older elders. They made the co aware of their reservations. Circuit overseer said that's not how it works in the organization. He wrote a letter of recommendation and forced the two elders hands by threatening to close the congregation.
Fast forward a few years brother H is caught cheating on his wife with a younger pioneer sister and his wife rats him out to the authorities and he is charged with embezzling money.