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However, in this case you would just play a nation called "Papal State" without the Papacy mechanics.
If this works depends on how the Government Reforms are implemented: Does the "Papacy Reform" simply forbids changing government type (or taking another 1st tier Reform) or does the game automatically recognize the tag PAP and forces the 1st tier Reform?
"The Papal State is an end game tag and is not allowed to form any other countries."
https://eu4.paradoxwikis.com/The_Papal_State
"The Papal State (...) is not allowed to form any other countries."
Anyway, I did not answer to the right question. Sorry for that
OP wants to be Holy Roman Emperor which is different from "Forming the HRE" (i.e. passing the last Imperial Reform).
Becoming Emperor does not count as "form another nation". Therefore (even without the exception "endgame tags can still form HRE") the Papal States can theoretically become Emperor. The only obstacle is, as already mentioned, Theocracies' Ineligibleness for Emperorship and the inability for Papal State to change government type.
The campaign I want to play is essentially "The Holy Roman Empire but it's actually holy and a Roman Empire this time" and to do that I want to first become the emperor as the Papal state, then form the HRE and start conquering former Roman territory.
Maybe try to trigger a monarchic revolt?
Every event that would make the papal state change religion or government have a check and should not work. There are some ways around it, but all very gamey.
Coudn´t find it, all I found is a modifier to the candidate pick, removing non monarchies from being voted for.
But there must be something otherwise the player could vote for republics/teocracies.