I would agree with you, if you mean by "Church", the Universal Church that Christ is building.
For the Church is not a building. It is not an institution. It is not a man or a particular teacher. The Greek word translated Church, would be better translated "ASSEMBLY'. It simply means - where a group of believers come together. This could be anywhere. However, the "Universal Assembly", is every member (Believer), that will make up the completed Assembly of Jesus Christ. (Eph. 1:4)
Having said the above.. of course Rom. 8:28 is dealing with individuals. Individuals, Predestined to be fitted into that Universal Assembly were placed into His Son, by the Father, before the foundation of the world. All believers are Predestined - O.T. and N.T. believers - who are then Redeemed by Christ's Person and Work.
The confusion for most, in understanding this Doctrine of Salvation, stems not from Predestination or Election but from not knowing what to do with the subject of Regeneration. Most know what Conversion is but few really understand Regeneration and most Churches today do not teach it. I have had Pastors tell me, that they don't teach it because there congregation would not understand it. Sad is it not?