@Balsamass - there is no longer a City Overseer. That position was eliminated. No wonder... it was kinda useless anyway.
Are there levels with the intent of keeping some in the dark? I would have to say yes. The "Shepherd" book that elders use now is one such example. Only elders get to have one and when one no longer serves, the other elders are supposed to ask for their copy back. What could they possibly want to keep hidden? I used to serve as an elder, and I've read that book cover to cover (unlike many fellow elders who didn't know the contents unless they had a JC.) So, what's so secret? How about policies of things they can and cannot do. For example, they CAN start a JC when someone celebrates a holiday that is religious in nature or that violates neutrality. That means birthdays are NOT something they can touch. This was brought out a the special elder's school, too. If the average JW found that out, they would start celebrating birthdays left and right.
What else? Oh, if a married couple decide to call it quits, unless there's some form of immorality involved, elders CANNOT get involved. At least, that's what the book says. Not true in reality, as many here know.
Even on the elder body there are levels. The "Service Committee" made up of the Coordinator, Secretary and Service Overseer, for example. They make many decisions alone without the input of the rest of the body. I have seen some elder bodies take this particular committee very, very seriously. Fortunately, the body I served on did not and was more loosy-goosy with that arrangement.
There are definitely levels, too, among average JWs. If a young woman does not marry a pioneer, ministerial servant or elder, others think poorly of her. If a young brother is not pioneering or serving as a ministerial servant or elder, others think poorly of him. It's all about position, at least in the minds of middle-aged to older JWs. The younger ones, it seems, could care less.