How do communities change rules?

From the text:

Rules were very hard to change. Sometimes, if it was a very important rule—unlike the one governing the age for bicycles—it would have to go, eventually, to The Receiver for a decision. The Receiver was the most important Elder. Jonas had never even seen him, that he knew of; someone in a position of such importance lived and worked alone. But the committee would never bother The Receiver with a question about bicycles; they would simply fret and argue about it themselves for years, until the citizens forgot that it had ever gone to them for study.