You completely ignored my point. How do you interpret Matt 18:17 given your notion that the Church is only the set of all believers?
-A8
17If he refuses to listen to them, tell it to the church; and if he refuses to listen even to the church, treat him as you would a pagan or a tax collector.NIV
15-17”If a fellow believer hurts you, go and tell him—work it out between the two of you. If he listens, you’ve made a friend. If he won’t listen, take one or two others along so that the presence of witnesses will keep things honest, and try again. If he still won’t listen, tell the church. If he won’t listen to the church, you’ll have to start over from scratch, confront him with the need for repentance, and offer again God’s forgiving love. THE MESSAGE
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What’s the confusion? Obviously, the local congregation is meant. Nothing else would be fitting or practical, it seems to me.