Paul’s View on Church Governance: A Survey in 1 Timothy & Titus
The pastoral epistles provide guidance and instruction from the Apostle Paul to his apostolic delegates Timothy and Titus on the church's ecclesiastical polity. In his three pastoral epistles, Paul reminds them of their duty to plant new churches, establish the church's leadership, train the leaders, and continue to do the same across their areas of influence. In Titus 1:5, Paul articulates instructions to Titus on his purpose, “that you might put what remained into order, and appoint elders in every town as I directed you.” Paul utilizes the word elder, translated from Greek (πρεσβυτεροσ) transliterated as presbuteros which typically refers to an individual's age concerning spiritual maturity. In the pastoral epistles, Titus is sent to Crete to elect new elders and Timothy to Ephesus to ensure those in the office of elder/overseer meet the qualifications. In Titus, Paul immediately directs Titus to the position and qualification of elders. In 1 Timothy, Paul provides more detail on other church matters before engaging the qualifications for elders and overseers to correct the false teachers and men who are disqualified for being in the office they currently hold.
In both Titus and 1 Timothy, the word elder (πρεσβυτεροσ) is used with the term overseer (επισκοποσ) transliterated as episkopos, which refers to an office of an individual who is charged with the duty of protection and oversight (shepherding).
These terms are used synonymously in reference to the same office.
An example of the synonymous usage of the word used interchangeably is Acts 20:17 and 28. In verse 17, Paul sends word to the elders (πρεσβυτερουσ) to meet him in Miletus. In verse 18, the elders arrive, and Paul directly addresses them. In Paul’s address to the elders, verse 28 provides substantive support for the interchangeable usage of elder and overseer to refer to the same office. In verse 28, Paul states, “that the Holy Spirit has made you overseers (επισκοπουσ) to shepherd the church of God.”
Within the same chapter, addressing the same individuals, Paul interchanges these two words associating them with the same office. Looking at 1 Timothy 3, the chapter begins with “the saying is trustworthy” this conveys that this is universal in understanding and most likely refers to a creed of importance regarding the position and qualifications for the office of overseer, indicating that this is not up for debate or questioning. Paul uses this several times to establish precedence and justification for his assertions (1Tim. 1:15; 4:9; 2 Tim. 2:11; Titus 3:8). Why does Paul use these two terms interchangeably? The answer comes down to the cultural context and socio-political situation of that time. As Andreas Köstenberger states, “the term πρεσβυτεροσ (elder) is Jewish in origin, generally signifying seniority, whereas επισκοποσ (overseer) is of Greek provenance, indicating a person’s superintending role.”[1]
Shifting to the governance role and use of the term elder/overseer, a logical progression and flow are present throughout the historical narrative in the book of Acts of the gospel spreading around the globe, beginning in Jerusalem to the Jews and then spreading to the Gentiles. Acts 14:23 provides insight into the language used to convey that appointing and establishing elders was a customary practice and pattern.[2] Assessing the sections in 1 Timothy 3:1, Acts 14:23; 20:17;28; Titus 1:5 a hierarchical structure is observable. Elder/overseers conduct the church's governance, oversight, and protection.[3] As Köstenberger indicates, a two-tiered structure is observable in the New Testament.[4] The first tier is that of overseers/elders/shepherds to equip the saints for the work of the ministry (Eph.4:11-12). The first tier comprises a plurality of men who meet the criteria outlined in 1 Timothy 3 and Titus 1. There is to be a plurality as indicated in the plural use in 1 Timothy 4:14 and Philippians 1:1; Titus 1:5; Acts 20:17, 29; 1 Peter 5:1-2. Notice the plural usage of the term, indicating that power is not to be held by one individual exclusively but as a plurality collectively. Therefore, understanding the interchangeable usage of elder/overseer in an office and qualification is observable regarding church governance.
Overseer refers to an office held by a man giving oversight and protection (shepherding) to the church congregation. Elder refers to the age and spiritual maturity of the individual within the given community.
Each of these terms refers to the ruling and governance of the church to be done together and an ability to teach (1 Tim. 3:2). Therefore, the proper biblical understanding and governance of the church is a group of elders together providing oversight, protection, and direction of the church, and one or more pastors are solely dedicated to the teaching and pastoral care of the church.
The second-tier office observed in the New Testament falling under the elders is that of the deacons. The first occurrence of this office is observed in Acts 6, in which an issue arose amongst the Hellenists regarding the distribution of food to the widows. In Acts 6:2, the 12 disciples observed the need for individuals to serve on the disciple’s behalf so that their primary focus and attention could be to that of prayer and ministering the Word (Acts 6:4). In this scenario, the disciples function as the overseer of the church creating the second-tier governance for the purpose in assisting the elders (disciples) to meet the needs of the local church. Acts 6:3 gives the qualifications for deacons, 1) good repute, 2) full of the Spirit, and 3) wisdom. The deacons are appointed to this duty from the congregation and affirmed by the disciples to serve the congregation on the disciple's behalf. The Greek word for deacon (διακονοσ) means one who executes the commands of another. This additional office is held within the church with the sole purpose of serving the church body. The seven deacons in Acts 6 were elected to serve the food to the widows; therefore, the chief tenant for deacons is service to the congregation, not governance. The qualification for a deacon does not require “able to teach,” indicating that teaching accompanies the authority of the church's government responsible to that of the overseers.
The term elder is sadly misunderstood in many denomination settings to indicate something specific to a particular denomination. However, once the terms and distinctions are made, the case becomes clear regarding the biblical precedence for church governance and what an elder is and is not.
[1] Andreas J. Köstenberger 1-2 Timothy and Titus (Bellingham, WA: Lexham Press, 2020), 124.
[2] Ibid., 124
[3] Implied within this is the term “shepherding” associated with the role of the pastor. This is not stating that only elders can be pastors, or that elders must be teaching. The text demonstrates the elder must “have the ability to teach” the capability of the elder in teaching doctrine and God’s Word is what is stressed.
[4] Köstenberger, 125.