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From GOARCh.org: http://www.goarch.org/en/ourfaith/articles/article8523.asp

Papal Primacy
Emmanuel Clapsis

The decision to study the primacy of the bishop of Rome in the universal Church of Christ indicates that the Orthodox?Roman Catholic consultation is moving towards the centre of the issues that have separated our respective communions. In this process, our deliberations must take seriously into account the theological statements of the bilateral dialogues between Roman Catholics and Anglicans, Lutherans and others. It must also take into consideration the reflection of Roman Catholic theologians who are seeking to reform ? but not to reject ? the primacy of the Roman church.[1] Orthodox?Roman theological reflection of the primacy of the Roman church in the universal Church of Christ must proceed, however, from the theological convergence that we have reached, based on the doctrine of the Trinity and the eucharist, concerning the nature of the Church as koinonia.[2] This will help us to transcend, not ignore, some divisive and inconclusive references to historical events.[3] In my view, the primacy of the bishop of Rome thus needs to be debated, reinterpreted, and justified from the developing ecclesiology of communion; this view of the Church is becoming the meeting point of our respective ecclesiologies.[4]

The ecumenical discussions

It has become increasingly apparent in ecumenical circles that many non?Roman theologians and churches are actually coming to regard some exercising of primacy by the Roman see as "normal", "desirable", ..useful", or (to some degree) "required". There is, however, a considerable difference between the official Roman Catholic view of primacy and the type of primacy that non?Roman theologians, churches and communions would be ready to accept for the well?being of the Church![5]

In the bilateral dialogues of Roman Catholics with Anglicans, Lutherans and Reformed, the primacy of the bishop of Rome is discussed in the context of communion ecclesiology. The eucharist is seen

* First printed in the Greek Orthodox Theological Review vol. 32, no. 2, 1987.

as the effectual sign of koinonia, episkope as serving the koinonia, and primacy properly understood and exercised as a visible and possibly necessary link between all those exercising episkope within the koinonia. The local church (a diocese) manifests the fullness of the Church. The communion of faith, love and order of all local churches reveals the unity of God's Church that subsists in fullness in each local church.[6] The communion of the local churches, attributed to bishops of prominent sees, views the function of overseer of their regions as one of the ways of maintaining the faithfulness and the unity of the local churches to Christ's gospel.[7]

Partly as a result of this development, the see of Rome, whose prominence was associated with the deaths of Peter and Paul, became the principle centre in matters concerning the universal Church.[8] The Anglican-Roman Catholic International Commission (ARCIC) statement of Venice (1976) states that the ministry of the bishop of Rome among his brother bishops was "interpreted" as Christ's will for his Church; its Importance was compared "by analogy" to the position of Peter among the apostles.[9] Classic Roman Catholic tradition maintained that the universal primacy of the bishop of Rome was divinely instituted by Jesus Christ. This was derived from the Petrine texts, and from the gospel accounts of Matthew (16:17?19), Luke (22:32)and John (21:15?17) according to the Roman tradition, they all refer not simply to the historical Peter, but to his successors to the end of time.[10]

Today, scriptural scholars of all traditions agree that we can discern in the New Testament an early tradition which attributes a special position to Peter among Christ's twelve apostles. The Church built its identity on them as witnesses, and responsibility for pastoral leadership was not restricted to Peter.[11] In Matthew 16:19, Peter is explicitly commissioned to "bind and loose"; later, in Matthew 18:18, Christ directly promises all the disciples that they will do the same. Similarly, the foundation upon which the Church is built is related to Peter in Matthew 16:16, and to the whole apostolic body elsewhere in the New Testament (cf. Eph. 2:10).It is thus possible to conclude that, although the distinctive features of Peter's ministry are stressed, his ministry is that of an apostle and does not distinguish him from the ministry of the other apostles. In addition, the New Testament does not contain an explicit record of the transmission of Peter's leadership, nor is the transmission of apostolic authority in general very clear. As a result, the Petrine texts of the New Testament have been subjected to differing interpretations from the time of the Church Fathers on. Many theologians regard Roman "primacy" as having developed gradually in the West due to the convergence of a number of factors, e.g., the dignity of Rome as the only apostolic Church in the West; the tradition that both Peter and Paul had been martyred there; Rome's long history as a capital of the Roman empire; and its continuing position as the chief centre of commerce and communication.[12] This view, however, does not necessarily consider the primacy of the bishop of Rome as contrary to the New Testament. It is possible to accept the primacy of Rome in a qualified way as part of God's purpose regarding the Church's unity and catholicity even while admitting that New Testament texts offer no sufficient basis for it.[13] Whether or not Peter's role can be transmitted in its totality, it would not exclude the analogical continuation of his ministry of unity, guided by the Spirit, among those who continue the apostolic mission. This "Petrine function" is necessary for the unity and catholicity of the Church. It may be executed by the pope, as Vatican I suggests, in consultation with but not independently from the bishops of God's Church.

For Roman Catholics, the relationship of the bishop of Rome with the ecumenical synods is not clearly defined, as Avery Dulles points out:

Vatican I, which placed supreme authority in the pope, left some uncertainty regarding the relations between the papacy, the universal episcopate, and ecumenical synods (which are not necessarily mere meetings of bishops). Since this uncertainty was not fully cleared up by Vatican II. the question of the supreme directive power in the Church still requires further discussion within the Roman Catholic communion.[14]

Lumen Gentium located the ministry of both the pope and the episcopal college within the one people of God; its statements on the local church's full ecclesial reality lead us to believe that Vatican II opted for an ecclesiology of communion in defining the nature of the Church. The real theological problem lies in specifying the exact relationship between the episcopal college and the pope, who can act Without juridical dependence on the college of which he is the head or on the communion of the local churches whose unity and truth he safeguards by being the central member of it.[15] Karl Rahner proposed that there can only be one organ possessing supreme potestas in the universal Church: the universal episcopal college with the bishop of Rome as its head. The episcopal college can only exercise its supreme potestas in union with its head: neither can the pope ever exercise supreme potestas in the universal Church except as head of the episcopal college (there are 110 juridical limitations on the exercise of this primatial power and no juridical response from the decisions of the legitimate pope ).[16] It is a truism that Vatican II, through its doctrine of episcopal collegiality, placed the primacy of the bishop of Rome in a new and much needed conciliar interpretative framework, but it simultaneously maintained (without synthesizing) the supreme and, to a certain degree, uncontrollable authority that Vatican I had attributed to the bishop of Rome. [17]

The ambiguity of this theological advance of Vatican II led the ARCIC participants to note: "Communion with the bishop of Rome does not imply submission to an authority which would stifle the distinctive features of the local churches. The purpose of the episcopal function of the bishop of Rome is to promote Christian fellowship in faithfulness to the teaching of the apostles."[18] The critical question here is whether this kind of ministry has been truly exercised by the bishop of Rome in a consistent manner that justifies its claims of importance. The ARCIC statement NOTES:

The theological interpretation of this primacy and the administrative structures through which it has been exercised have varied considerably through the centuries. Neither theory nor practice, however, has ever fully reflected these ideals. Sometimes functions assumed by the see of Rome were not necessarily linked to the primacy. Sometimes the conduct of the occupants of this see has been unworthy of his office. Sometimes the image of this office has been obscured by interpretations placed upon it, and sometimes external pressures have made its proper exercise almost impossible.[19]

I wonder whether, in moments of divisive theological or ecclesiastical quarrels, it would be possible for the bishop of Rome to exercise his primacy with the approval of all Christians in order to safeguard the unity, the truth and the catholicity of Christ's Church. By the same token, it is difficult to justify ecclesiologically the juridical independence of the bishop of Rome from the college of bishops of which he is head. Does this juridical independence not lead to authoritarian abuses of the pope's ecclesiastical power if and when he chooses? What administrative structure is necessary for the proper function of the primacy in the life of the Church? More significantly, what are the ecumenically accepted rights (of diakonia) and limits (of authority) of the bishop of Rome within a Communion of local churches who have been judged to be fully catholic? One of the most effective and normative means which the Church has for resolving the conflicts and debates which endanger its unity or threaten to distort itsgospel is to appeal to the Tradition embodied in scripture, conciliar creeds, canons and patristic writings. Bishops in such situations have a special responsibility to safeguard the unity and the truth of the Church: it is their collective as well as individual responsibility to defend and interpret the apostolic faith in unity with all God's people.[20]

It is possible, however, for the bishops to be intolerant, fallible in judgment, and distorting of the truth. But since Christ will never desert his Church, we remain confident that ultimately the Holy Spirit will lead Christ's Church to all truths and unity.[21] By the grace of the Holy Spirit the Church is infallible when it meets in synods to clarify the Church's understanding of the central truths of salvation once these synods have been recognized by the people of God as true and catholic expressions of the apostolic faith. [22] In such a context the universal primacy of the bishop of Rome would have him be the president as well as the spokesman of the Church and, in times of need, he would be the Church's unitary voice, reflecting and expressing its conscience.

"A primate exercises his ministry not in isolation but in collegial association with his brother bishops."[23] Thus primacy fulfills its purpose by helping the churches to listen to one another, to grow in love and unity, and to strive together towards the fullness of Christian life and witness; it respects and promotes Christian freedom and spontaneity; it does not seek uniformity where diversity is legitimate, or centralized administration to the detriment of the local churches.[24]

As for the Roman claim that the pope possesses universal immediate jurisdiction over the life of the local churches (the limits of which are not clearly specified), many Christians fear that this jurisdiction may be subject to an illegitimate and uncontrolled use.[25] The ARCIC statement of Windsor defines jurisdiction as "the authority of power (potestas) necessary for the exercise of an office"[26] and it proceeds to accept the "universal immediate jurisdiction" of the bishop of Rome as inherent to his office due to his call to serve the unity of the koinonia "as whole and in each of its parts".[27] This "universal immediate jurisdiction" should be exercised, however, not in isolation, but in collegial association with his brother bishops, who are equally concerned for the unity and truth of the universal Church (the result of their office and not of their association with the bishop of Rome).

Yet the bishop of Rome, the Windsor statement declares, has the right in special cases to intervene in the affairs of a diocese and to receive appeals from the decision of a diocesan bishop. It is because the universal primate, in collegial association with his fellow bishops, has the task of safeguarding the faith and the unity of the universal Church that the diocesan bishop is subject to his authority.[28]

However this kind of authority, although it is defined not as autocratic power over the Church, but as a service in and to the Church, which is a communion in faith and charity of local churches, needs in its practical application to be safeguarded against any abuses which may lead to suppression of theological and liturgical traditions of which the bishop of Rome does not approve.

The Orthodox position

What is the Orthodox view on the bishop of Rome's primacy, especially as reinterpreted by Roman Catholicism in its dialogue with other Western Christian churches? One may rejoice that Western Christians have begun to recover his importance for the unity of Western Christendom, but from an Orthodox perspective it is imperative to study the primacy of Rome in the context of the primacies of the patriarchs of the East and their role in the universal Church .[29]

It would be impossible for us to reach any convergence on the significance of the bishop of Rome if our consultation were to begin with a comparison of classic Roman Catholic and Orthodox views of the papacy. Our common reflection on this issue must be situated in the common ecclesiology of communion that our respective churches have begun to share, especially after Vatican II.[30] In 1974 our consultation stated: "The Church is the communion of believers living in Jesus Christ with the Father. It has its origins and prototype in the Trinity in which there is both distinction of persons and unity based on love, not subordination."[31] It also affirmed that the eucharistic celebration "both proclaims the most profound realization of the Church and realizes what it proclaims in the measure that the community opens itself to the Spirit".[32] This kind of ecclesiology leads to an affirmation of the full catholicity of the local church ? provided it lives by the Spirit of God which makes it the living body of Christ in communion of love with other local churches that share the same faith and life pattern. Within the unity of the local churches, "a real hierarchy of churches was recognized in response to the demands of the mission of the Church"[33] without, however, the fundamental equality of all churches being destroyed. How should we understand the churches as having a hierarchy if they are fundamentally and irreversibly equal to each other as a result of God's full presence in them? What is the qualitative theological difference between a local church which exercises primacy and another local one over which this primacy is exercised? If a local church is fully catholic, how is it enriched by its relation with a primatial church? In 1974, the Roman Catholic members of this consultation vindicated the primacy of the bishop of Rome (as defined by Vatican 1) with no reference to the advances of the Second Vatican Council through which a more communitarian image of the papacy could be advanced.[34] Although the institution of primacy (regional or universal) from an Orthodox perspective is taken for granted by the very fact of its existence, I will agree with Father Alexander Schmemann, who noted that we badly need the clarification of the nature and function of all the primacies, and especially the very concept of primacy.[35] It is imperative that Orthodox ecumenical witness develop an ecclesiologically sound interpretation of primacy.

If primacy is defined as a form of power, then we encounter the question of whether in the Orthodox church there is a power superior to that of a bishop, i.e., a power over the bishop, and hence the church of which he is head. Theologically and ecclesiologically the answer must be an unconditional no: there is no power over the bishop and his church. In the canonical and historical life of the Church, however, such supreme power not only exists but is conceived as the foundation of the Church; it is the basis of its canonical system. According to Father Schmemann, this reflects the alienation of canonical tradition from ecclesiology and its reduction to canon law in the context of which the life of the Church came to be expressed in juridical terms.[36]

Our theological statement on the nature of the Church (1974) and the Munich statement of the international Orthodox?Roman Catholic dialogue have indirectly rejected the idea of a universal ecclesiology in which the Church is the sum of all local churches, which all together constitute the body of Christ. This kind of ecclesiology means that each local church is only a part, a member of the universal Church that participates in the Church only through belonging to the whole.[37] Thus, if the Church is a universal organism, it must have as its head a universal bishop as the focus of its unity and as the organ of supreme power. Consequently, the model of ecclesiology makes imperative the necessity of universal primacy as divinely instituted for the essential being of the Church. This is the kind of ecclesiology which, together with other historical causes, gave birth to the image of papacy defined by Vatican I in 1870.

Eucharistic ecclesiology affirms the catholicity of the local church, and allows no room for the categories of "parts" or "whole". It is the very essence of this ecclesiology that the universal Church subsists in toto in the local church.[38] This kind of ecclesiology excludes the idea of primacy, understood as power over the local church and its bishop. The local churches, however, are not self?sufficient monads but are united with each other, not in terms of "parts" and "whole", but with regard to their identity of order, faith and gifts of the Holy Spirit which make each one and all of them together the one, holy, catholic and apostolic Church. Trinitarian ecclesiology also develops the insight that there is one Church just as there is one nature in God; the best way to express the oneness of the Church, however, is the communion of the many local churches. It is very important, on the other hand, to emphasize that the multiplicity of the Church should not be subjected to its oneness; in eucharistic and Trinitarian ecclesiology, communion and oneness coincide and, therefore, the multiplicity of the Church is constitutive of its oneness. In the life of the local church this means that the "one", the bishop, cannot exist without the "many", the community, and the many cannot exist without the one. This implies that all pyramidal notions disappear in ecclesiology: the "one" and the "many" coexist as two aspects of the same being. There is no ministry, which does not need the other ministries. On the universal level this means that the Church manifests its oneness through a ministry which comprises simultaneously a primus and the synod of which he is a primus. From this perspective, it is thus possible to accept the universal primacy of a bishop, which cannot, however, be conceived apart from the synod or over it.[39]

The communion of local churches, ontologically identical in faith, order and charisms of the Holy Spirit, bear witness to their unity when they gather themselves together through their bishops, in synods.

The synod is not "power" in the juridical sense of the word, for there can exist no power over the Church, the Body of Christ. The synod is, rather, a witness to the identity of all churches as the Church of God in faith, life and "agape". If in his own church the bishop is priest, teacher and pastor, the divinely appointed witness and keeper of the Catholic faith, it is through the agreement of all bishops, as revealed in the synod that all churches both manifest and maintain the ontological unity of tradition.[40]

As a result of church life and mission in the context of history, moreover, in times of discord the synod becomes the common voice, the common testimony of the ontological unity of several (or all) churches. For Orthodoxy the truth that a synod affirms thus makes the synod an authority in the life of the Church; the basis of its primacy is derived from this as binding for the historical life of God's Church. The primacy of the synod cannot, however, be conceived as power over the local church but rather as a charismatic instrument through which the churches of God witness and express their ontological unity in the truth of the gospel. The primacy of the synod, through which the local churches witness and express their unity in the salvific truths of Christ, does not exclude the primacy of the first bishop or the metropolitan. In regional synods, in which all the bishops of the area must participate, the primacy of the first bishop must be acknowledged and respected as the famous 34 Apostolic Canon states: "The bishops of every nation must acknowledge him who is first among them and account him as their head, and do nothing of consequence without his consent... but neither let him (who is the first) do anything without the consent of all; for so there will be unanimity..." From this canon, it is thus evident that the regional primacy can be conceived not as power or jurisdiction but only as an expression of the unity and unanimity of all the bishops, and consequently of all the churches, of an area.

We must understand the universal primacy of the Roman Church similarly. Based on Christian Tradition, it is possible to affirm the validity of the church of Rome's claims of universal primacy. Orthodox theology, however, objects to the identification of this primacy as "supreme power" transforming Rome into the principium radix et origio of the unity of the Church and of the Church itself.[41] The Church from the first days of its existence undeniably possessed an ecumenical centre of unity and agreement. In the apostolic and Judaeo?Christian period this centre was first the church of Jerusalem and later the church of Rome ? "presiding in agape" according to St Ignatios of Antioch.[42] For the Orthodox, the essence and the purpose of this primacy is to express and preserve the unity of the Church in faith and life; to express and preserve the unanimity of all churches; to keep them from isolating themselves into ecclesiastical provincialism, losing the catholicity, separating themselves from the unity of life. It means ultimately to assume the care, the sollicitudo of the churches so that each one of them can abide in that fullness which is always the whole of the Catholic tradition and not any one "part" of it. The idea of primacy thus excludes the idea of jurisdiction but implies that of an "order" of Church which does not subordinate one church to another, but which makes it possible for all churches to live together this life of all in each and of each in all.[43]

In summary, Orthodoxy does not reject Roman primacy as such, but simply a particular way of understanding that primacy. Within a reintegrated Christendom the bishop of Rome will be considered primus inter pares serving the unity of God's Church in love. He cannot be accepted as set up over the Church as a ruler whose diakonia is conceived through legalistic categories of power of jurisdiction. His authority must be understood, not according to standards of earthly authority and domination, but according to terms of loving ministry and humble service (Matt. 20:25?27).[44]

Before the schism, in times of ecclesiastical discord and theological controversies, appeals for peaceful resolutions and mediation were made to the pope from all parts of the Christian world. For instance, in the course of the iconoclast controversy, St Theodore the Studite (759?829) urged the emperor to consult the pope: "If there is anything in the patriarch's reply about which you feel doubt or disbelief... you may ask the chief elder in Rome for clarification, as has been the practice from the beginning according to inherited tradition."[45] From an Orthodox perspective, however, it is important to emphasize that these appeals to the bishop of Rome are not to be understood in juridical terms. The case was not closed when Rome had spoken, and the Byzantines felt free on occasion to reject a Roman ruling.[46]

In a reintegrated Christendom, when the pope takes his place once more as primus inter pares within the Orthodox Catholic communion, the bishop of Rome will have the initiative to summon a synod of the whole Church. The bishop of Rome will, of course, preside over such a synod and his office may coordinate the life and the witness of the Orthodox Catholic church and in times of need be its spokesman. The role of acting as the voice of the Church is not, however, to be restricted to any hierarchical order within the Church, still less to a single see. In principle, any bishop, priest or layman may be called by the Holy Spirit to proclaim the true faith.