Note: this article is not as long as it looks. Most of the space is taken up by footnotes!
Matthew 16:18-19 has been called one of the most controversial passages in all of Scripture. Certainly this has been true since the Reformation, with Catholics touting this dominical saying as a proof text for the papacy and Protestants denying that it is anything of the kind. Over the past few decades, however, biblical scholars have managed to clear away much of the polemical haze that previously clouded interpretation of this passage. There is now a broad consensus among both Protestant and Catholic scholars on certain aspects of the saying's meaning. The purpose of this article is to explore this fascinating saying in light of recent biblical research and then to reflect briefly on its ecclesiological implications.
Although I find "hostile witness" arguments in theological discourse to be objectionable, I do note that most of the scholars I will be citing in this article are Protestant, only to emphasise that I am not merely presenting a Catholic-biased perspective on this passage.
1. The saying in context
2. The immediate context
3. You are Peter, and upon this rock I will construct my Community
4. The gates of Hades will not be able to defeat it
5. I will give to you the keys of the kingdom of heaven
6. Whatever you bind on earth shall have been bound in heaven, and whatever you loose on earth shall have been loosed in heaven
7. The priestly aspect of Peter's role
8. The polemical dimension to the saying
9. Summary of exegetical findings
10. Ecclesiological implications: papacy or no papacy?
1. The saying in context
What follows is my translation of Matt. 16:13-20, following the NA28 Greek critical text:
13 And Jesus, having come into the region of Caesarea Philippi, put a question to his disciples, saying, "Whom do men claim the Son of Man to be?" 14 And they said, "Some say it is John the Baptizer, others Elijah, and still others Jeremiah or one of the prophets." 15 He said to them, "And you (plural)? Who do you claim me to be? 16 And Simon Peter said in reply, "You are the Messiah, the Son of the living God." 17 And Jesus said to him in reply, "Blessed are you, Simon Barjona, for flesh and blood have not revealed this to you, but my Father who is in heaven. 18 And I, for my part, tell you that you are Peter (Greek: petros), and upon this rock (Greek: petra) I will construct my Community (or, Church), and the gates of Hades will not be able to defeat it. 19 And I will give to you (singular) the keys of the kingdom of heaven, and whatever you (singular) bind on earth shall have been bound in heaven, and whatever you (singular) loose on earth shall have been loosed in heaven. 20 Then he ordered the disciples not to tell anyone that he is the Messiah.
If you don't want to rely on my translation skills (and you probably shouldn't), feel free to mouse over the following links to read the passage in the or .
2. The immediate context
The conversation between Jesus and his disciples at Caesarea Philippi runs thus. First, Jesus puts a question to his disciples collectively, which they answer collectively. Second, Jesus puts another question to his disciples collectively, which Simon Peter answers individually with a direct assertion about Jesus: "You are the Messiah..." Third, Jesus pronounces a blessing upon Simon Peter individually. The blessing begins with a declaration that Simon's statement was a revelation from God in heaven, and continues by reciprocating with a direct assertion about Simon: "You are Peter, and..." The meaning of this latter assertion in verses 18-19 is our primary concern here.
Simon Peter plays a prominent role in the wider Matthean narrative. He is given much more attention than than any other disciple of Jesus. He is the first disciple Jesus calls (4:18), and he is explicitly "first" in the list of the twelve apostles (10:2). However, things are not all rosy for Simon Peter. His faith falters when he walks on water (14:25-31). Immediately after Jesus's blessing of Peter in Caesarea Philippi, we find the account of Jesus's stern rebuke of Peter, "Get behind me, Satan!" when he fails to understand Jesus's saying about the cross (16:21-23). When Jesus finds his disciples asleep in Gethsemane, he directs the collective rebuke "to Peter" (26:40), as though he were responsible for the collective failure. Most famously of all, Matthew records Peter's threefold denial of Jesus in painstaking detail (26:33-35, 58, 69-75). Thus the Matthean Peter is a vitally important but deeply flawed character. (Space will not allow us to discuss the portrayal of Peter in Acts and other parts of the NT.)
In saying, "You are Peter," Jesus is giving Simon Barjona a new name of great significance. Davies and Allison correctly observe that this moment stands in the grand tradition of important biblical figures receiving new names from God at pivotal moments (e.g., Abram becoming Abraham, Sarai becoming Sarah, Jacob becoming Israel). In this sense, Peter is being likened to an eschatological patriarch.
The sharpest Protestant-Catholic debate over this passage has concerned the referent of "this rock." It is unfortunate that in many sermons and popular-level discussions this debate continues, because it is largely resolved at the scholarly level. The rock is Peter. This is clear in the Greek from wordplay that is unfortunately lost in translation. The wordplay survives in French: "Et moi, je te le déclare, tu es Pierre et sur cette pierre je construirai mon église..." A rough English translation that preserves it might be, "You are Rocky, and on this rock..." The Greek reads, su ei Petros, kai epi tautē tē petra... The Greek word petra means "rock," while petros has a slightly different nuance, closer to "stone." If wordplay is intended, why is it not exact? Why is Simon named Petros and not Petra? The answer is simple: petra is a feminine word, so it has been modified in the nickname into a (relatively rare) masculine word, petros, of similar meaning. Actually, though, it is Matthew or his source who has encountered and resolved this little Greek linguistic problem. The saying was probably originally transmitted in Aramaic, where the word for "rock" (כפא, kephaʾ) is masculine, so no gender modification was required. Hence, in Aramaic terms Jesus would have said, "You are kephaʾ, and on this kephaʾ..." Originally, then, the wordplay was exact. For this reason, nearly all scholars today agree that Peter himself is "this rock [on which] I will construct my Community". Commentators also have some sharp words for those who, driven by theological bias, continue to propagate speculative interpretations of the rock, such as that it is Peter's faith, or Peter's confession in v. 16, or that it is Jesus.
Most translations render this clause along the lines of, "You are Peter, and on this rock I will build my church." I have translated, "construct my Community." "Construct" because Jesus is using a building construction metaphor here. Rock or stone is suitable as a building foundation (cf. Matt. 7:24-25; 21:42), and every other occurrence of the verb oikodomeō in Matthew refers to physical construction (7:24-26; 21:33; 21:42; 23:29; 26:61; 27:40). As most scholars agree, Jesus is likening his Community to a building, more specifically the Temple (an ecclesiological metaphor used elsewhere in the NT; cf. 1 Cor. 3:9-17; Eph. 2:19-21; 1 Pet. 2:5-8; Rev. 3:12). Matt. 16:18 is one of only two places in the Gospels where the word ekklēsia (usually translated "church") occurs (the other being Matt. 18:17). Jesus was foretelling that he would found the eschatological community that we today know as the Church. Perhaps Matthew's readers would have already understood ekklēsia as a technical term like "church," but in the original saying it would have come across as "my (Messianic) Community."
To summarise, in this clause Jesus promises to make Simon Peter personally the foundation of his eschatological Community, which we know as the Church. Verse 19 elaborates on Simon Peter's role, but first we must touch on the last part of v. 18.
There is considerable debate about the meaning of "the gates of Hades," but this need not detain us much here. In the cosmology of the context, heaven is the realm of God, earth is the realm of humankind, and Hades is the realm of darkness and death. Its depiction as having "gates" heightens the cosmological image. Syntactically speaking, the feminine pronoun "it" (autēs) could refer to the petra (rock) or the ekklēsia (Community); the latter seems more likely. The promise, then, is that as the eschatological Community extends the reign of God on earth (which has arrived in the ministry of Jesus; cf. Matt. 4:17; 12:28), the powers of evil, darkness and death will be unable to stop it. As this promise is sandwiched between assertions about Simon Peter, it appears that his role is instrumental to the success and survival of the eschatological Community.
5. I will give to you the keys of the kingdom of heaven
"You" here is singular in Greek (soi), so Jesus is still addressing Peter individually in v. 19. Before going further, we need to excise the popular picture of St. Peter standing at the pearly gates admitting souls into heaven. The second part of the verse makes it clear that Jesus is talking about Peter's activity "on earth." The "kingdom of heaven" in Matthew is not about sending people from earth to heaven, but releasing heaven on earth. The kingdom of heaven entails God's will being done "on earth, as it is in heaven" (Matt. 6:10). This occurs provisionally through the mission of Jesus and his eschatological Community (Matt. 28:18-20), and consummately at "the end of the age" when the Son of Man comes and removes all evil "out of his kingdom," so that "the righteous will shine like the sun in the kingdom of their Father" (Matt. 13:40-43).
The keys are universally recognized by scholars to denote authority. However, a more specific understanding of this metaphor is possible once we recognize, as numerous scholars have, that Matt. 16:19 alludes to Isa. 22:15-25. There, Isaiah speaks an oracle on behalf of Yahweh to "that official, Shebna, master of the palace" (v. 15). After condemning Shebna as a disgrace, Yahweh declares,
19 I will thrust you from your office and pull you down from your station. 20 On that day I will summon my servant Eliakim, son of Hilkiah; 21 I will clothe him with your robe, gird him with your sash, confer on him your authority. He shall be a father to the inhabitants of Jerusalem, and to the house of Judah. 22 I will place the key of the House of David on his shoulder; what he opens, no one will shut, what he shuts, no one will open. 23 I will fix him as a peg in a firm place, a seat of honor for his ancestral house; 24 On him shall hang all the glory of his ancestral house: descendants and offspring, all the little dishes, from bowls to jugs. (Isa. 22:19-24 NABRE)
Here, then, we have an account of an "office" that comes with "authority," including being the bearer of "the key of the House of David." The imagery of opening and shutting irrevocably strikingly parallels that of binding and loosing with the backing of heaven in Matt. 16:19 (language that is discussed further below). Also corroborating the parallel is the reference to the "house of David," since in Matthew 16 Peter has just confessed Jesus to be the Messiah, the Son of God, which in Matthean parlance means the eschatological Davidic king (cf. Matt. 1:1 etc.).
One person (Shebna) is deposed from this office and another (Eliakim) is appointed in his place. Drawing extensively on biblical and archaeological research, Willis describes for us the status of "high government official under consideration here":
סכן in Isa. 22.15 means 'substitute' (for the king), 'prefect', 'governor', 'steward', or 'deputy', that is, the person responsible for the care of the royal palace and of the people, thus the highest official in the land under the king... occurrences of the title אשר על הבית, '(he) who (is) over the house(hold)'... suggest that... it referred to a high governmental official who was in charge of the royal palace and its inhabitants, and later to one who held the highest post in the nation under the king and was over the entire royal estate. Accordingly, he held a governmental position similar to that of the 'chief steward' in Egypt and a high official in Canaanite city states. The contexts in which the Hebrew word אב 'father' (or its equivalent) appears as a term for a high governmental official in... indicate this individual was 'second in command' under the king, with very widespread administrative responsibilities. 'The key of the house of David' which which Yahweh says he will place on Eliakim’s shoulder (which, apparently, had been on Shebna’s shoulder) evidently refers to an actual large wooden key which the royal ‘steward’ carried on his shoulder to lock and unlock doors to various public buildings and offices, whose locks were large (cf. Judg. 3.25; 1 Chron. 9.27). Thus is signified his extensive authority in the Judean governmental administration. He was in charge of the governmental offices and royal chambers, and permitted or refused people to go in to the king. From the central governmental complex in the royal capital, he exercised supreme authority over the entire country.
To summarise, we have in Isaiah 22 a description of a high office, the chief steward of the royal household, who is called a "father" to the house of Judah and is second-in-command in the kingdom, effectively a substitute for the king himself. Within the oracular narrative, one person (Shebna) is to be deposed from this office and another (Eliakim) appointed.
Before discussing what all this might mean for our interpretation of Matt. 16:19, it is crucial to note that this is not the only NT passage to draw on Isa. 22:15-25. In Jesus's letter to the church in Philadelphia in Revelation, he describes himself as "The holy one, the true, who holds the key of David, who opens and no one shall close, who closes and no one shall open" (Rev. 3:7 NABRE). This is an almost word-for-word quotation of Isa. 22:22. However, here Jesus places himself in the office of chief steward of the king's household, the holder of the keys (cf. also Rev. 1:18). Implicitly, God is the king here and Jesus is his second-in-command. That Jesus could construe himself as the occupant of the office described in Isa. 22:15-25 shows just how lofty and important this office was. It also shows that this oracle was being interpreted eschatologically in the early church.
Back then to Matt. 16:19 with this information in hand. Here, Jesus is cast in the role of king (16:16) and appoints Peter as his second-in-command, his chief steward over the royal household. Alternatively, one might argue that God is the ultimate king, that he will delegate absolute authority to his Messiah, and that the Messiah will in turn delegate this authority (symbolized by the keys) to Peter. The risen Jesus declares, "All authority in heaven and on earth has been given to me" (Matt. 28:18). However, because he will not physically exercise this authority "on earth" after ascending to heaven, he delegates it to his eschatological Community, his royal household—and ultimately, to Peter, the chief steward over the royal household.
In light of this Isaianic background to Matt. 16:19, commentators have variously described Peter as "the major domo of [Jesus's] kingdom," "the chief steward, the major domus, in the Kingdom," "the steward (the chief administrative officer) in the kingdom of heaven," having "the same authority as that vested in the vizier, the master of the house, the chamberlain, of the royal household in ancient Israel," "a sort of supreme rabbi or prime minister of the kingdom," "the primary custodian and guarantor of the tradition of the teaching of Jesus."
6. Whatever you bind on earth shall have been bound in heaven, and whatever you loose on earth shall have been loosed in heaven
Jesus's appointment of Peter as his chief steward who will oversee his royal household is backed up with an additional promise. The second-person verbs are singular in Greek, so the addressee is still Peter individually. The "binding and loosing" metaphor is a subject of extensive debate that actually merits a separate article. At least two other verses come into play here: Matt. 18:18, where a similar promise is made to the Community collectively (with plural verbs) and John 20:23, where the risen Jesus tells the disciples (i.e. apostles), "Receive the holy Spirit. Whose sins you forgive are forgiven them, and whose sins you retain are retained." Via a linguistic argument that we cannot reproduce here, some scholars have concluded that these are all modified versions of an original Aramaic saying that followed Isa. 22:22, along these lines: "whatever you open is opened (by God); whatever you shut is shut (by God)." John 20:23 interprets/applies the saying specifically to the matter of forgiveness of sins. Matt. 18:18 applies it to the matter of disciplining (and ultimately excommunicating) a sinning member. In Matt. 16:19, most scholars agree that the scope of binding and loosing is broader and more general, comprising halakhic authority (authority over religious law, i.e. determining dos and don'ts for community members) and/or doctrinal authority. This is, of course, closely related to forgiveness of sins and community discipline, because before a sinner can be forgiven or disciplined it is necessary to determine what is and is not sin.
Therefore, this saying most likely assumes that Peter has the authority to make rulings on what is permitted and what is forbidden in the community. What is more, Jesus asserts that when Peter makes rulings on earth, these rulings "will have been" made in heaven. Most scholars believe that the rare verb tense (future perfect passive) used here should be taken seriously. Hence, Jesus is not saying that heaven will ratify Peter's rulings, but that whatever rulings Peter makes will already have been ratified in heaven. This does not, as Turner claims, diminish the weight of delegated earthly authority; rather, it properly relates it to divine authority. Peter's rulings still carry divine authority, but he cannot preempt God. Rather, God makes a ruling and then communicates it to the Community through Peter.
Ganzel notes that the office described in Isa. 22:15-25 is not only political but has a religious dimension: Eliakim is "garbed in sacerdotal vestments," which implies that "another aspect of his role was to protect the sanctity of the holy places... the preservation of the status of the palace, the Temple, and Jerusalem." Barber goes further, noting that in early Jewish tradition there are "several indications that Isaiah 22 was understood as describing Eliakim as a priestly figure." Accordingly, several scholars have come to the conclusion that Peter in Matt. 16:17-19 is depicted in a priestly role, perhaps even as high priest in the eschatological Community. This finds support in John 20:23 where, as already noted, a similar saying has been explicitly interpreted in terms of the priestly function of forgiving and retaining sins.
Thus, if we give full weight to the Isaianic background of Matt. 16:17-19, it is apparent that Jesus is appointing Peter to a high office with halakhic, doctrinal and priestly scope, second in kingdom authority only to King Jesus himself.
Scholars have observed that by describing Peter as the rock on which his spiritual House (Temple) is built, by making him the chief steward of the royal household and by delegating to him heaven-backed halakhic authority, Jesus is implicitly denying these prerogatives to the existing Jewish religious system. "The scribes and Pharisees have taken their seat on the chair of Moses," says Jesus (Matt. 23:2), which is regarded by many scholars as a description of teaching authority (whether arrogated or real). The Pharisees "tie up heavy burdens and lay them on people's shoulders, but they will not lift a finger to move them" (Matt. 23:4)—a failure of their "binding and loosing" responsibilities. The scribes and Pharisees "lock the kingdom of heaven before human beings" (Matt. 23:13), and so their authority over the kingdom is taken away (Matt. 21:43) and the keys given to Peter instead. The Jerusalem Temple will be destroyed (Matt. 24:2), but "something greater than the temple" has come (Matt. 12:6); Jesus is building a new, spiritual Temple and founding it on Peter the rock.
Within the context of this polemic, one must consider Jesus's words in Matt. 23:8-12. After excoriating the scribes and Pharisees for their self-aggrandizement, Jesus declares,
8 As for you, do not be called 'Rabbi.' You have but one teacher, and you are all brothers. 9 Call no one on earth your father; you have but one Father in heaven. 10 Do not be called 'Master'; you have but one master, the Messiah. 11 The greatest among you must be your servant. 12 Whoever exalts himself will be humbled; but whoever humbles himself will be exalted. (NABRE)
How can we to square this with the notion that Jesus has appointed Peter as something akin to Chief Rabbi, an office that in Isaiah is called "master of the palace" and "father"? The answer is not to water down the saying in Matt. 16:17-19 and conclude that Matthew envisions a democratically egalitarian community without hierarchy. Rather, as verses 11-12 emphasize, authority in the kingdom of heaven is subject to the higher principle of service. It is not authority that is the problem, it is how the authority is exercised: whether in a domineering way like the Gentile rulers (Matt. 20:25), a fame-loving way like the scribes and Pharisees (Matt. 23:7), or a serving, sacrificial way like the Son of Man (Matt. 20:28). Moreover, even Peter as chief steward of the royal household is but the first among servants, among disciples—the distance between his rank and that of his fellow disciples is tiny compared to the distance between his rank and those of God and his Messiah.
In response to Simon Barjona's confession of faith in his Messiahship at Caesarea Philippi, Jesus gave him a new name, Peter, symbolizing his pivotal position as the rock on which the new Temple, the Messianic Community, will be founded (v. 18). We can sum up our findings on v. 19 thus:
the major opinion of modern exegetes… has it that Peter, as a sort of supreme rabbi or prime minister of the kingdom, is in 16.19 given teaching authority, given that is the power to declare what is permitted...and what is not permitted...Peter can decide by doctrinal decision what Christians must and must not do. This is the traditional Roman Catholic understanding, with the proviso that Peter had successors.
The above summary identifies the point at which an
exegetical argument for the papacy from Matt. 16:17-19 breaks down: no successors to Peter are mentioned. I have elsewhere offered
historical evidence for apostolic succession; I will close this article by arguing that this saying, interpreted theologically in its wider Matthean context, logically necessitates a papacy. By "a" papacy, I mean a perpetual line of individual successors to Peter who continue his office as holder of the keys of the kingdom of heaven. It cannot be proven from Matthew that the Roman Catholic bishops of Rome
are this line of successors, though I know of no rival claim that has any historical credibility.
First, the observation that Matt. 16:17-19 does not mention Peter's successors is an argument from silence. Matthew construes these words as spoken to Peter during Jesus's earthly ministry; their scope is the church's earliest beginnings and not the full sweep of ecclesiastical history. Matthew's Gospel, like most of the New Testament, shows little explicit concern with the problem of post-apostolic church order. Although the writers did not know the day or the hour of the Son of Man's coming (cf. Matt. 24:36), they expected it to come soon (cf. e.g., Phil. 4:5; Jas 5:8; Rev. 22:20) and thus did not anticipate a long post-apostolic era. Nevertheless, since Peter was almost certainly dead by the time Matthew's Gospel was written, the prominence given to Peter suggests that his authority retained ongoing relevance for the Matthean community. While Matthew does not spell out in what form Petrine authority might still exist after Peter's death, he also does not mention any cessation of Petrine authority (nor does he even have Jesus foretell Peter's death, as John does [21:18-19]). Furthermore, if Matthew understood Peter's office as analogous to the Jewish priesthood or high priesthood, this would have contributed to the idea that the office was transferable. The argument from silence cuts both ways and is finally inconclusive.
At the close of Matthew's Gospel, Jesus gives the Great Commission (Matt. 28:18-20). He declares that "all authority in heaven and on earth" has been given to him, and on that basis ("Go therefore") he sends the Eleven out on their global mission of baptizing and teaching. This command is accompanied by a promise, "And behold, I am with you always, until the end of the age." In Matthean parlance, "the end of the age" corresponds to the coming of the Son of Man and the final judgment (13:39-43; 13:49; 24:3). So, Jesus's commission to the Eleven, rooted in Jesus's absolute authority over heaven and earth, remains in force and has the full backing of Jesus's authority and presence, until the Second Coming. It therefore remains in force today. However, "the Eleven" (28:16), to whom these words were explicitly spoken, are all long dead. We are therefore bound to concede that, although Matthew is silent on how this delegated authority to baptize and teach might continue after the Eleven died, it did and does continue.
Now, in Matt. 16:17-19 we have a specific and concrete instance of Jesus's delegation of some of his "all authority in heaven and on earth." He founds his Community on an individual, earthly "chief steward," Simon Peter, who receives an earthly commission with heavenly backing. Do the words, "I am with you always, until the end of the age" not apply as much to Peter's individual commission as to the Eleven's collective commission in 28:19? Both flow out of Jesus's absolute, undying authority over heaven and earth. We can as easily argue that the Great Commission died with the Eleven as that the keys died with Peter. Both events would contradict the promise, "I am with you always" as well as the promise, "and the gates of Hades shall not be able to defeat it." As is clear from the Isaianic background, the keys given to Peter symbolize an office (one that has two successive occupants within the background narrative itself). I suggest, then, that if Jesus still has "all authority in heaven and on earth," and is still "with" his Community, the keys of the kingdom of heaven that he gave to Peter must still be held by someone.
A final note concerns the ecclesiological benefits of a unitary, visible head of the Community, a doctrinal and halakhic authority whose rulings are final, backed by heaven. As Cardinal Newman explained in his classic Essay on the Development of Christian Doctrine, the full authority of the papacy took centuries to be acknowledged and asserted. Nevertheless, if one considers the collective "binding and loosing" authority of Matt. 18:18 without the individual "binding and loosing" authority of Matt. 16:19, the problem arises, what if members or factions within the Community cannot agree on a doctrinal or halakhic matter? What if two factions mutually excommunicate each other, both declaring their ruling to be backed up by heaven? What is to be done in such cases? Sadly, church history reminds us that these questions are not merely hypothetical. But an individual holder of the keys, a chief steward of the king's household, seated on the chair of St. Peter, offers an unambiguous resolution of such conundrums. If Jesus saw fit to found his Community with an individual chief steward in charge—who happened to be a deeply flawed person, apart from the help of the Holy Spirit—why should an individual chief steward subsequently become a bad idea for the Community?
Footnotes