Ac 14:23* And when they had ordained them elders in every church, and had prayed with fasting, they commended them to the Lord, on whom they believed.
Tit 1:5* For this cause left I thee in Crete, that thou shouldest set in order the things that are wanting, and ordain elders in every city, as I had appointed thee:
This sounds (to our "church experience") as if we are saying that there should be rulers within the church--"elders" who are to be ordained as rulers within the church. We connect this idea that these elders are pastors--rulers of large church bodies---and also the teachers and ministers of that church.
Interesting to note that there were elders who did not teach the word--
1Ti 5:17* Let the elders that rule well be counted worthy of double honour, especially they who labour in the word and doctrine.
But what was an elder?
Simply someone who was to lead a home church. The church met in homes--their own pre-existing dwellings. they did not have need of building large buildings--temples"--because they strongly realized the fact that every Christian was the living temple of the Holy Spirit. they strongly realized that ministry was for all Christians---the "rule of elders" was to lead the others who ministered within their the church---their "house of God".
these rules of church behavior then make sense--when we read in 1Cor 11-14--these rules apply to the home church--a place where all could prophecy--any could move in any gift as the Spirit gave ability.
We always apply the Bible to the experience of seeing our Roman governmental churches. We always apply the word of God to what we see and have experienced as "the church" which is the wrong type and form of government--elders were simply leaders of a home Bible study--a home church meeting--perhaps which took place daily within people's homes.