The catholicity of the Church comprises two aspects:
(1.) It is the
unity of doctrine and fellowship, of teaching and practice, which is shared by
all the congregations of the
whole Church in
every time and place; and,
(2.) It is the
fullness of the one Church in
each congregation, in
each time and
each place, wherever the apostolic doctrine of Christ is faithfully received and handed over in teaching and practice.
The locus of this catholicity is the preaching of Christ and the administration of His gifts. That is why the Church, properly speaking, is the whole communion of those believers in Christ among whom the Gospel is rightly preached and the Sacraments are rightly administered in accordance with the Gospel. Wherever there is this faithful preaching and hearing, this faithful giving and receiving of the Gospel, there is the Church, the one Body of Christ.
The catholicity of any given congregation is therefore both
inward and
outward. On the one hand, the Church in each congregation is fully self-contained and self-sufficient in the local Ministry of the Gospel; because it is Christ Himself who speaks and acts in that Ministry. On the other hand, the Ministry of the Gospel does not belong exclusively to any one congregation; because it is the sacred tradition of the one Lord Jesus Christ, handed over to His holy Apostles and to each succeeding generation of His Church on earth. Because a congregation lives from that Ministry, and
is the Church because of that Ministry of the Gospel, it belongs to the fellowship of every other congregation that lives from that same Holy Ministry.
The fellowship of the Church catholic is the shared participation of the means of grace. To have pulpit and altar in common is not merely a consequence of Church fellowship; it
is the fellowship of the Church. For as the Church lives in the preaching and hearing, the giving and receiving of the Gospel, so does the fellowship of the Church reside in the mutual administration of the Gospel. This fellowship is not parcelled out in bits and pieces, nor by degrees, but is whole and complete in the common preaching of the one Lord, the common teaching of the one faith, the common practice of one Baptism for the forgiveness of sins, and the common administration of the one Bread, which is the Body of Christ, and the one Cup, which is the New Testament in His Blood. Many other things may differ between congregations, whether in their temporal circumstances, their pious customs or ceremonies, without impinging upon the catholicity and fellowship of the Church. But differences in the preaching, teaching and administration of the Gospel are a breaking of the Church's fellowship on earth.
The catholic faith is not divided, nor can it be, but the Church
on earth is, on account of sinful human fraility and mortal weakness. Thus, the fellowship of the Church on earth is necessarily marked and measured by the outward confession of the catholic faith, that is, by the preaching and teaching of the Holy Scriptures and the administration of the Holy Sacraments. Differences in this outward confession divide the fellowship of the Church on earth, so that the integrity of the catholic faith may be clarified, and that the erring may be corrected and called to repentance. Since the heart of the faith is the Gospel, and Christ is the Savior of sinners, we do not conclude that the heterodox are damned; but precisely for the sake of Christ and His Gospel, neither do we encourage or embrace the outward confession of heterodoxy. Rather, we share the fellowship of the means of grace with those who share with us the outward confession of the catholic faith in teaching and practice.
The Lutheran Church Missouri Synod is a fellowship of congregations ostensibly sharing a common confession of the catholic faith. The polity of this synodical fellowship was formed, historically, on a congregational basis. That arrangement demonstrates a real understanding of catholicity, in recognizing the wholeness of the Church in the life of each local congregation, and in the mutual cooperation of those congregations as fellow members of the one Body of Christ. The synodical membership of congregations collectively and of pastors individually, and the suffrage of both congregations and pastors in the governance of the Missouri Synod, rightly acknowledges that the Church comprises both preachers and hearers of the Gospel. That the official leadership of this polity is vested in men ordained to the Holy Ministry is appropriate, given that the pastors of the Church are responsible for the administration of the Gospel, which is the foundation of the Church and the basis for the fellowship of congregations in the Church.
Unfortunately, the autonomy of congregations within the fellowship of the Missouri Synod has increasingly meant an independence of spirit and practice. At the same time, the "advisory" role of "the Synod" has become increasingly legalistic and heavy-handed, as confidence in the Word of God appears to have waned and the unity of our confession in teaching and practice has been stretched and strained. The political representation of both congregations and pastors often seems to be a competitive balance of powers, almost adversarial, instead of the harmonious concord of preachers and hearers. Suffrage in general has been driven by partisan propaganda, rather than emerging out of the lived catholicity of the Church in the practice of congregations. The "pastors" who administrate the polity of our synodical fellowship have been ordained, but, with few exceptions, they are no longer pastoring the Church with the means of grace; they are not attached to any one pulpit and altar; and they are not regularly preaching and teaching and administering the Gospel. Sadly, that is also the case with most of our seminary professors. As a consequence, the leading "pastors" of our synodical fellowship are functionally removed from the beating heart of our catholicity, where the Church lives and the fellowship of the Church resides. That is not to fault those men who are presently serving in such offices, but it is a fault of the current LCMS polity.
Church fellowship is pulpit and altar fellowship. It is the fellowship of real bishops, that is to say, of parish pastors who are called and ordained to the oversight of particular congregations. When a pastor communes the member(s) of another congregation, it is because he is in fellowship with the pastor of that other congregation; which means, or ought to mean, that he preaches and teaches and practices the same confession of the catholic faith. Likewise, when a pastor preaches from the pulpit of another pastor's parish, he does so within the fellowship of their common confession, as a sharing of pastoral care and catechesis; for that is what preaching is.
The polity of our synodical fellowship ought to be connected, at ground level, as closely as possible to that real life of the Church in local congregations. It should therefore be structured along the contours of pastoral fellowship in the catholic faith, in service and support of pastoral practice. Such a polity would rightly begin with the mutual conversation and consolation of brother pastors serving congregations in close proximity.
The current arrangement of circuits in the LCMS is generally quite sound, and the monthly meeting of circuit pastors would be a fine starting point for synodical structure and governance. In that comradery of real bishops (parish pastors), a mutual consensus should be reached to identify one as an overseer of the rest. We have that now in the office of circuit counselor, but there is a lack of clarity and consistency in the way that office is understood and exercised. Although the circuit counselor is more-or-less chosen by his colleagues (whether by consensus or compromise), he then functions officially as an agent of the District President, so his relationship to the circuit ends up being from the top-down, instead of from the ground-up. But the special strength of the circuit counselor is that he (not always, but usually) continues to serve as a full-time pastor in his own parish; he remains a real bishop of the Church in that place. His humanly arranged oversight of colleagues is informed by the exercise of his divinely given pastoral vocation.
Now, the circuit overseers within a larger region might identify one of their number to serve as their overseer and representative; and, in turn, those regional overseers might identify one of their number to serve as their overseer and representative; and so on, and so forth, perhaps as many as three or four levels of oversight.
Each of these overseers should continue to serve his pastoral office as a real bishop of the Church in a particular place, that is to say, as the pastor of his own congregation. At some level of oversight, it is likely that a pastor would not be able to serve a parish on his own while also serving the larger synodical fellowship. Even then, instead of becoming a "full-time" politician, he should still be attached to the particular pulpit and altar of a local congregation, where he would regularly serve as a minister of the liturgy in cooperation with the parish pastor, and, as time permits, regularly preach and teach, visit the homebound and hospitalized, and administer the holy Sacraments. In such a case, his income would be covered, in whole or in large part, by the synodical fellowship, so as not to be a burden but a benefit to the local congregation. It would not need to be a large congregation. The point is that an overseer of brother pastors should remain actively engaged in parish life and pastoral practice. The same thing is true of seminary professors. It wouldn't be necessary for the parish service of these men to be extensive, nor should it be excessive, but only regular and consistent, a genuine service and a real participation in the life of the Church. A fine example is provided in the case of my dear friend and colleague, Pastor Grobien, who serves as an assistant pastor of Emmaus in South Bend while pursuing his full-time doctoral studies at the University of Notre Dame. Such arrangements can be made to the mutual benefit of both the pastor and the congregation, without unduly burdening either.
The most important "oversight" within this sort of synodical polity would not be that which requires "full-time" attention at a district or national level, but that of the circuit overseer. His "political" function, so to speak, would be to foster collegial fellowship with and among the circuit pastors and to facilitate the discernment of their conciliar wisdom pertaining to pastoral practice and the Church's confession of the catholic faith. Every other level of synodical oversight would build upon this pastoral foundation.
The role of the laity in this polity would be exercised, first and foremost, in the relationship they actually have, by divine arrangement, with their own pastors. For it is precisely in that relationship of the faithful with their own pastors that the Church catholic is embodied and lives in the form of the local congregation. Pastors do not constitute the Church by themselves; preachers and hearers belong together in Christ, as the Gospel belongs to faith and faith to the Gospel. (That is why every man ordained to the Office of the Holy Ministry should be attached to a particular pulpit and altar.) This relationship of pastors with the people of God is not a competition, nor should it be contentious, but is the very concord of Christ and His Church.
As pastors are called to serve the Church within their divine vocation as Ministers of the Gospel, so are the laity called to serve within their own respective vocations. This works well in the life of a healthy parish, and there's no reason it can't work on the larger scale of synodical politics. The members of sister congregations within a circuit, for example, ought to cooperate in planning and putting into practice the common efforts of the "synod in that place." That should be happening more than it does. Especially with respect to legal and financial considerations, and in the Church's work of mercy in the world, the laity are often much better positioned and equipped than most pastors to carry out the responsibilities of the Church's earthly life. That is true at every level of a synodical fellowship. As they are fully members of the Church, the laity ought to be fully involved in developing, authorizing, and undertaking such enterprises, whether in part-time or full-time capacities. Not in competition with the pastors of the Church, nor as a "balance of powers," but as a stewardship in cooperation with the pastors.
In sum, the polity of our synodical fellowship ought to be congregationally structured and pastorally governed. That is simply to say that our polity, however it may be formed in the freedom of faith, ought to grow out of the preaching and hearing, the giving and receiving of the Gospel. It ought to concern itself chiefly with that Ministry of the Gospel. It ought to be always returning us (and calling others) to that life of the Church in the pure fountain which flows from the riven side of Christ, our Lord.