Universi Dominici Gregis

Commentary

Brian Murphy

May 18, 2025

Universi Dominici Gregis (UDG) is the Apostolic Constitution, the highest document level in the Church, authored by Pope Saint John Paul II that governs the activities of papal conclaves to elect a new pope.

The present essay is not a summary of UDG. Rather, it focuses on a single question: What happens if the detailed prescripts of UDG are not followed? Who arbitrates and decides what appropriate actions are necessary? In the Church today, there are various sincere well-meaning individuals who are crying “foul” on the conclave of 2013 that elected Pope Francis and on the conclave of 2025 that elected Pope Leo XIV. While it is perfectly acceptable to cry “foul” and point out stipulations of UDG that were not followed, it is not appropriate for clergy or laity to make seemingly conclusive declarations of invalidity of a conclave, even if there are clear and obvious deviations from UDG. The answer to the question “who decides” is simple and straightforward - the Cardinals decide.
The principle that the Cardinals decide is clearly enunciated in Chapter 1, section 5 and 6 of UDG, which read as follows:

"5. Should doubts arise concerning the prescriptions contained in this Constitution, or concerning the manner of putting them into effect, I decree that all power of issuing a judgment in this regard belongs to the College of Cardinals, to which I grant the faculty of interpreting doubtful or controverted points. I also establish that should it be necessary to discuss these or other similar questions, except the act of election, it suffices that the majority of the Cardinals present should concur in the same opinion.

“6. In the same way, should there be a problem which, in the view of the majority of the assembled Cardinals, cannot be postponed until another time, the College of Cardinals may act according to the majority opinion."

Note that the authority to arbitrate disputes is given to the Cardinals - nobody else. This authority is not just an authority to interpret controversial points but includes “the manner of putting them into effect.” The phrase "except the act of election" is there because election requires a two-thirds majority, not a simple majority. Similar to paragraph 5, paragraph 6 gives power to the Cardinals, and nobody else, to resolve problems, based on a majority opinion.
Note that the Cardinals do not possess the power to change the UDG Constitution, even in minutia. However, if there is a deviation, they are the ones empowered to arbitrate what must be done going forward. Now, it is important to note that if someone cries “foul” and the Cardinals do nothing about it, the Cardinals have in effect rendered a majority opinion. For example, if there is a deviation based on fact that 133 Cardinals voted in 2025, whereas UDG specifies a maximum of 120 Cardinals and no Cardinal responds to raise the objection, the matter remains closed. One may argue that this interpretation is invalid because it gives the Cardinals the power to do what they wish. Well, yes it does, if the majority agree. If no Cardinal objects to some deviation from UDG, then we can only assume that the majority either does not agree with the deviation or that they consider it unimportant and not worthy of further debate.
We can see the Divine Wisdom in UDG. No outsider is permitted to make declarations based on real or perceived deviations from UDG, thereby disrupting peace in the Church and misleading the faithful. Only the Cardinals can resolve disputes within the College of Cardinals and they are obligated to do so.