Catholic is the only religion in the game that put limits on who is able to make use of the religion. No other religion do that. It is kind of ironic that one of the most global religion would be the most strict one in who is able to make use of it.
Better just let everyone that follow this religion be able to get Cardinals.
How about this:
Cardinals can always from the continent that the Papacy's capital is on. Cardinals can also come from regions of other continents, if the overseas region border the Pope's continent. Jerusalem is magic and always gets one, too (or something like that)
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