عبدالمطلب عبداله رهیافت انقلاب اسلامی 2980-9118 20 74 2026 05 22 Legal Inflation and Governance Efficiency Challenges in Iran’s Legislative System تورم قوانین و چالش کار آمدی حکمرانی در نظام قانونگذاری ایران 289 314 247709 FA سید سعید صفوی مربی گروه حقوق، دانشگاه پیام نور، تهران، ایران(نویسنده مسئول) Journal Article 2026 02 16 Legal inflation has emerged as one of the major challenges of contemporary legal systems, occurring when the accumulation of binding rules, multiplicity of norm-producing authorities, and frequent amendments undermine the coherence and predictability of the legal order. This study examines the question of whether the increasing volume of laws and regulations in Iran’s social security system has weakened the effectiveness of legal governance. The main hypothesis of the research is that the accumulation of laws, executive regulations, and administrative directives in the field of social security has not necessarily enhanced regulatory efficiency; rather, it has contributed to normative complexity, fragmented institutional responsibility, and increased costs of legal implementation. The study employs a descriptive-analytical method based on documentary analysis of laws, amendments, executive regulations, governmental resolutions, and administrative circulars related to the Iranian social security system. The findings indicate that the expansion of regulatory layers, the absence of systematic legal consolidation, and the proliferation of norm-producing sources have reduced legal transparency, increased interpretive ambiguity, and challenged the coordinated implementation of social security regulations. Accordingly, moving toward evidence-based legislation and systematic consolidation of regulations is essential for improving governance effectiveness in this field. Introduction Law, as one of the fundamental instruments of modern governance, performs the essential function of organizing social relations, protecting rights, and providing predictable frameworks for collective action. However, the expansion of governmental responsibilities in economic, social, and welfare domains has resulted in an unprecedented growth of legal and regulatory norms. This phenomenon, commonly described as legal inflation or regulatory accumulation, occurs when the volume, diversity, and complexity of binding rules exceed the capacity of legal institutions and social actors to understand, implement, and comply with them effectively. Legal inflation is not merely a quantitative increase in legislation; rather, it reflects the fragmentation of legal sources, frequent amendments, overlapping norms, and the emergence of multiple layers of regulation that may weaken legal coherence and governance effectiveness. The Iranian legal system has also experienced significant expansion in legislative and regulatory production, particularly in areas characterized by extensive governmental intervention. The social security system represents one of the most important examples, as it directly affects millions of insured individuals, employers, pensioners, and public institutions. Since the adoption of the Social Security Act in 1975, this legal framework has been repeatedly modified through amendment laws, development plans, annual budget laws, governmental regulations, administrative circulars, and executive directives. Consequently, the regulatory structure of social security has gradually transformed into a multilayered legal environment in which identifying applicable rules requires reference to numerous and sometimes dispersed legal documents. The present study investigates whether the accumulation of laws and regulations in Iran’s social security system represents a necessary expansion of legal protection or constitutes a form of legal inflation that negatively affects governance efficiency. The main hypothesis of the study is that the continuous accumulation of legislative and regulatory documents in the social security sector has increased normative complexity, weakened legal transparency, fragmented institutional responsibility, and reduced the predictability of regulatory outcomes. Materials and Methods This research employs a descriptive-analytical method based on documentary analysis. The research data consist of primary legal and regulatory documents related to Iran’s social security system, including the Social Security Act of 1975, subsequent amendment laws, provisions of development plans and annual budget laws, executive regulations, government resolutions, and administrative circulars issued by the Social Security Organization. The documents were analyzed according to several indicators of legal inflation, including the growth of regulatory layers, the multiplicity of norm-producing authorities, frequency of amendments and interventions, overlap among legal provisions, and the need for continuous administrative and judicial interpretation. The analytical framework of the study is based on the distinction between ordinary legislative development and legal inflation. While ordinary legislative development responds to new social needs within a coherent legal structure, legal inflation occurs when the production of rules creates additional complexity without improving regulatory effectiveness. Discussion The study argues that the effectiveness of governance depends not only on the existence of legal rules but also on the coherence, accessibility, and predictability of those rules. In complex regulatory fields such as social security, excessive accumulation of norms may shift law from being a clear mechanism for governance into an obstacle requiring continuous interpretation. The coexistence of parliamentary legislation, executive regulations, and administrative directives creates multiple layers of authority and may blur the boundaries of responsibility among legislative and executive institutions. From a governance perspective, regulatory accumulation generates several challenges. First, it reduces legal coherence by dispersing the applicable rules across numerous documents. Second, it increases implementation costs for administrative bodies and compliance costs for citizens and employers. Third, it weakens predictability because frequent modifications and interpretive interventions make legal outcomes uncertain. Finally, it contributes to institutional fragmentation by expanding the number of actors involved in producing and interpreting social security norms. Results The findings demonstrate that the Iranian social security system exhibits several characteristics associated with legal inflation. The analysis indicates that the expansion of regulatory layers has not necessarily resulted in greater efficiency or clarity; instead, it has contributed to complexity, interpretive dependency, and difficulties in coordinated implementation. The accumulation of laws, regulations, and administrative directives has transformed the social security legal framework from a relatively unified system into a dispersed regulatory network. The study concludes that improving governance effectiveness in social security requires moving from continuous rule production toward regulatory management and legal consolidation. Establishing systematic mechanisms for the codification and revision of existing regulations, conducting impact assessments before adopting new laws, strengthening the role of comprehensive legislation, and limiting unnecessary administrative rule-making are among the necessary measures for reducing legal inflation and enhancing the efficiency of Iran’s social security governance system. تورم قوانین به عنوان یکی از چالش‌های نظام‌های حقوقی معاصر، زمانی رخ می‌دهد که انباشت قواعد الزام‌آور، تعدد منابع تولید هنجار و اصلاحات مکرر، موجب کاهش انسجام و پیش‌بینی‌پذیری نظام حقوقی شود. پژوهش حاضر با طرح این پرسش که «آیا تراکم قوانین و مقررات در حوزه تأمین اجتماعی ایران موجب کاهش کارآمدی حکمرانی حقوقی شده است؟» به بررسی رابطه میان افزایش قواعد و کیفیت تنظیم‌گری در این حوزه می‌پردازد. فرضیه اصلی پژوهش آن است که انباشت قوانین، آیین‌نامه‌ها و مقررات اجرایی در نظام تأمین اجتماعی، به جای افزایش کارآمدی، موجب پیچیدگی هنجاری، پراکندگی مسئولیت و افزایش هزینه‌های اجرای قانون شده است. پژوهش حاضر با روش توصیفی ـ تحلیلی و با بهره‌گیری از روش تحلیل اسناد، قوانین، اصلاحیه‌ها، آیین‌نامه‌ها، مصوبات و بخشنامه‌های مرتبط با نظام تأمین اجتماعی را بررسی کرده است. یافته‌های پژوهش نشان می‌دهد که تعدد لایه‌های مقرراتی، فقدان تنقیح مستمر و گسترش منابع تولید قاعده، موجب کاهش شفافیت حقوقی، افزایش تفسیرپذیری و دشواری اجرای هماهنگ مقررات تأمین اجتماعی شده است. بر این اساس، حرکت به سوی قانونگذاری ارزیابی‌محور و یکپارچه‌سازی مقررات، از الزامات ارتقای کارآمدی حکمرانی در این حوزه است.

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