Political influence of Holy See in EU as Pope Leo replaces Francis

On April 21, 2025, Pope Francis, head of the Holy See and sovereign of the Vatican, died at age 88. He was replaced on May 8 by Pope Leo XIV, the first North American pope.

The Holy See is the central governing body of the Roman Catholic Church. Not to be confused with Vatican City (its territorial state), the Holy See is a recognised sovereign entity under international law.

The Holy See, derived from the Latin Sancta Sedes, meaning “holy chair”, boasts one of the world’s oldest and most effective diplomatic networks, sending and receiving diplomatic missions since the fourth century. It maintains full diplomatic relations with 184 countries. As well as this, it participates in intergovernmental organisations such as the UN and has diplomatic ties with multilateral organisations such as the EU.

As part of its diplomatic activities, the Holy See sends apostolic nuncios, essentially ambassadors, to capitals across the continent. Beyond its religious mission, the Holy See wields considerable political influence, particularly in the EU institutions.

The Commission of the Bishops’ Conferences of the European Union

The EU and the Holy See established diplomatic relations in 1970. Since 1980, the Commission of the Bishops’ Conferences of the EU (COMECE) has served as the Catholic voice at the heart of EU policymaking.

Established with the approval of the Holy See to represent Catholic bishops’ conferences from across the EU, COMECE engages directly with EU institutions.

Twice a year, COMECE convenes a plenary assembly to set its policy direction. COMECE operates six commissions on legal affairs, external relations of the EU, social affairs, migration and asylum, ethics, and culture and education. The commissions employ experts to monitor and prepare contributions to these legislative and policy areas.

COMECE’s work gained stronger institutional footing in 2009, when Article 17 of the Treaty on the Functioning of the European Union provided churches and religious associations with a legal basis for dialogue with the EU, including high-level meetings between COMECE, religious leaders, and EU institutions, such as the EU Commission and the European Parliament. The EU participates in COMECE’s plenary assemblies, commission groups, and ad-hoc working groups.

As reported by the EU’s transparency register, COMECE carried out 29 communication activities between 2023 and 2024 related to 44 various EU legislative proposals or policies. It had a budget of approximately €1.4m for such activities in 2023.

COMECE has also held 21 official meetings with the European Commission since 2015. These include exchanges on Brexit, the social economy, and the European green deal.

By comparison, the Conference of European Churches (CEC), an association of 114 Orthodox, Protestant, Anglican, and Old Catholic Churches from all EU countries, have held just three meetings with the Commission since 2015.

However, since 1997, COMECE has partnered with the CEC to meet each presidency of the council of the EU. Most recently, COMECE and the CEC met with Poland’s minister for EU affairs, Adam Szłapka, on April 7, to discuss issues from peace in Ukraine, to Europe’s security architecture, to merit-based EU enlargement.

Irish influence in COMECE

Ireland has played a notable role in COMECE’s history. Two Irishmen have served as general secretary: Noël Treanor (1993–2008) and Patrick Daly (2012–2016). Another two Irishmen have also served as vice-presidents: Bishop Cahal Brendan Daly (1980-1983) and Bishop Joseph Duffy (1990-1993). Archbishop Kieran O’Reilly of Cashel and Emly is currently the Irish delegate to COMECE.

The Holy See was one of the Irish Free State’s earliest diplomatic relationships, established in 1929. Archbishop Luis Mariano Montemayor is the current papal nuncio to Ireland.

The next pope

Pope Francis left behind a legacy unlike many of his predecessors, marked by outspoken political views and strong humanitarian stances on migration, climate, conflict, and economic justice; views sometimes at odds with Europe’s rightward shift.

Pope Leo’s choice of name signals he will continue the work of his predecessor, “institutionalising” Francis’s reforms, experts have said.

As the world watches on, the EU will be attuned to the direction the Holy See may take on key political issues, as COMECE continues to play its part in EU policymaking.