Mike Jones,
I can't speak for all clubs, but generally an idea gains traction and takes on a life of its own. It's usually discussed and championed at the committee level.
Sometimes the green committee has the authority to make the changes without further approval. Other times Board and/or membership approval is required.
If Board approval is necessary, the concept is elevated to the Board for approval. However, before it goes to the board, some lobbying goes on to insure it will be approved or meet with little in the way of resistance.
If it's approved at the Board, depending upon its cost and/or the by-laws, it can be implemented.
If membership approval is required, a similar process takes place, lobbying occurs to try to assure that passage is a certainty.
Presentations are made and the concept is promoted to the membership.
In many cases, that dastardly third party influence is brought into the fray and used to promote the cause.
Now, that's the general outline on how it can occur.
Many clubs have different procedures, but, in general, the membership doesn't have the keen interest, backround or knowledge to question or oppose a well prepared presentation. In addition, if the green committee and board have done their homework, they'll know the outcome before the vote is taken.