For many years the cry of reform of the Church in its head and members had been heard in nearly every country of Europe. The justice of such a demand was admitted universally, but the difficulties in the way were so great that no Pope cared to risk a generous scheme of reform.
Most of the abuses of the fifteenth and sixteenth centuries might be traced back to the decline of the papal power during the Avignon exile and the Great Western Schism. When peace was restored to the Church, and when the Popes might have done something for the revival of ecclesiastical discipline, the advocates of the conciliar theory blocked the way by their extravagant attacks on the Papacy, and by their attempts to destroy the supremacy of the Holy See under the guise of reforming the Roman Curia. Besides, it was impossible to carry through any effective measures for the removal of abuses without attacking what were regarded as vested interests, and the holders of these interests were determined not to yield without a struggle. The cardinals wished to restrict the rights of the Pope; the bishops wished to reform the cardinals and the Papal Court; the Paris doctors wished to reform the bishops and the regular clergy; while the regular clergy traced all the evils in the Church to the indifference and neglect of the secular priests. Unfortunately there was no man endowed with the foresight and the courage of Gregory VII. to put his finger upon the real cause of the downfall, namely the slavery of the Church, and to lead a campaign for the independence of the spiritual power, particularly for the restoration of free canonical elections.
At the Council of Constance everybody recognised the necessity of reform, but the jealousies of the various nations, the opposition of the interests concerned, and the fear of provoking a new schism, made it impossible to do more than to adopt temporary expedients, which, it was hoped, might give some relief. Decrees concerning exemption from episcopal authority, the union of benefices, simony, tithes, and the duties of the clerical state were promulgated in the fourteenth session, and the other questions, upon which the different nations could not agree, were to be regulated by Concordats with the Holy See.
The Concordat with the German nation dealt with canonical election, appeals to Rome, annats, indulgences, dispensations, and the limitation of excommunication; the English Concordat insisted on the right of England to be represented in the college of cardinals and contained clauses dealing with indulgences and dispensations; the Concordant with Castile regarded the number of cardinals, the reservation and collation of benefices, annats, /commendams/, appeals, and indulgences; by the Concordat with France it was arranged that owing to the wars in which France was engaged the annats and other taxes payable to the Holy See should be reduced considerably. Measures such as these were utterly inadequate even had they been observed to the letter, but in reality complaints were made frequently, especially in Germany, that they were disregarded.
The Council which met in Siena (1524) was entirely unrepresentative, and was dissolved without having accomplished anything. But great hopes were expressed that the Council of Basle would formulate and carry out a thorough scheme of reform. Unfortunately, however, these hopes were doomed to disappointment. An extreme section, hostile to the Papacy and determined to weaken its position, dominated the Council, and made it impossible to do the work for which the assembly had been convoked. Though the council held its first session in 1431, nearly four years passed before any reform decrees were issued. They dealt with concubinage, excommunication, the abuse of interdicts, and the abolition of annats and other taxes payable to the Holy See. The violence with which the Council assailed Eugene IV., and the fear of a new schism alienated many who were anxious for reform, but who were not willing to attack the essential prerogatives of the Pope. The clergy of France met at Bourges in 1432, and with their consent the Pragmatic Sanction of Bourges was published by the king in 1438.
According to this edict annats were retained, but were reduced to one-fifth of the amount formerly paid, and most of the reformatory decrees of Basle were adopted for use in France. Germany was desirous of reform, but at the same time unwilling to break with the Holy See, and hence the German nation remained neutral in the disputes between Eugene IV. and the Council. Finally Germany returned to its allegiance, and the Concordat of Vienna was signed in 1448, according to which the right of the Pope to make appointments to benefices in the Empire and the amount of the fees to be paid to the Curia were regulated. This agreement was not regarded with favour in some parts of Germany, and complaints were made frequently by the princes that the terms of the agreement were not observed by the Roman officials.
England also took steps to protect itself by the Statutes of /Provisors/ and /Praemunire/ (1453). These statutes rendered null and void all collations, reservations or provisions of benefices made by the Holy See in England, and forbade all appeals to the Roman tribunal on questions which could be settled before English tribunals.
During the pontificate of Nicholas V., Calixtus III., and Pius II., very little was done for reform. The fear that if another General Council were convoked the disgraceful scenes of Basle might be repeated, and the dangers which threatened Europe from a Turkish invasion, seem to have paralysed the Popes, and to have prevented them from taking effective measures to abolish evident abuses. Paul II.