As the government eliminated the political opposition and successfully prosecuted the war with Iraq, it also took further steps to consolidate and to institutionalize the achievements of the Revolution. The government took several measures to regularize the status of revolutionary organizations. It reorganized the Pasdaran and the Crusade for Reconstruction as ministries (the former in November 1982 and the latter in November 1983), a move designed to bring these bodies under the aegis of the cabinet, and placed the revolutionary committees under the supervision of the minister of interior. The government also incorporated the revolutionary courts into the regular court system and in 1984 reorganized the security organization led by Mohammadi Rayshahri, concurrently the head of the Army Military Revolutionary Tribunal, as the Ministry of Information and Security. These measures met with only limited success in reducing the considerable autonomy, including budgetary independence, enjoyed by the revolutionary organizations.

An Assembly of Experts (not to be confused with the constituent assembly that went by the same name) was elected in December 1982 and convened in the following year to determine the successor to Khomeini. Khomeini's own choice was known to be Montazeri. The assembly, an eighty-three-member body that is required to convene once a year, apparently could reach no agreement on a successor during either its 1983 or its 1984 session, however. In 1985 the Assembly of Experts agreed, reportedly on a split vote, to name Montazeri as Khomeini's "deputy" (qaem maqam), rather than "successor" (ja-neshin), thus placing Montazeri in line for the succession without actually naming him as the heir apparent.

Elections to the second Majlis were held in the spring of 1984. The IFM, doubting the elections would be free, did not participate, so the seats were contested only by candidates of the IRP and other groups and individuals in the ruling hierarchy. The campaign revealed numerous divisions within the ruling group, however, and the second Majlis, which included several deputies who had served in the revolutionary organizations, was more radical than the first. The second Majlis convened in May 1984 and, with some prodding from Khomeini, gave Mir-Hosain Musavi a renewed vote of confidence as prime minister. In 1985 it elected Khamenehi, who was virtually unchallenged, to another four-year term as president.

Bazargan, as leader of the IFM, continued to protest the suppression of basic freedoms. He addressed a letter on these issues to Khomeini in August 1984 and issued a public declaration in February 1985. He also spoke out against the war with Iraq and urged a negotiated settlement. In April 1985 Bazargan and forty members of the IFM and the National Front urged the UN secretary general to negotiate a peaceful end to the conflict. In retaliation, in February 1985, the hezbollahis smashed the offices of the party, and the party newspaper was once again shut down. Bazargan was denounced from pulpits and was not allowed to run for president in the 1985 elections.

There were, however, increasing signs of factionalism within the ruling group itself over questions of social justice in relation to economic policy, the succession, and, in more muted fashion, foreign policy and the war with Iraq. The debate on economic policy arose partly from disagreement over the more equitable distribution of wealth and partly from differences between those who advocated state control of the economy and those who supported private sector control. Divisions also arose between the Majlis and the Council of Guardians, a group composed of senior Islamic jurists and other experts in Islamic law and empowered by the Constitution to veto, or demand the revision of, any legislation it considers in violation of Islam or the Constitution. In this dispute, the Council of Guardians emerged as the collective champion of private property rights. In May 1982, the Council of Guardians had vetoed a law that would have nationalized foreign trade. In the fall of 1982, the council forced the Majlis to pass a revised law regarding the state takeover of urban land and to give landowners more protection. In January of the following year, the council vetoed the Law for the Expropriation of the Property of Fugitives, a measure that would have allowed the state to seize the property of any Iranian living abroad who did not return to the country within two months.

In December 1982, the Council of Guardians also vetoed the Majlis' new and more conservative land reform law. This law had been intended to help resolve the issue of land distribution, left unresolved when the land reform law was suspended in November 1980. The suspension had also left unsettled the status of 750,000 to 850,000 hectares of privately owned land that, as a result of the 1979-80 land seizures and redistributions, was being cultivated by persons other than the owners, but without transfer of title.

The debate between proponents of state and of private sector control over the economy was renewed in the winter of 1983-84, when the government came under attack and leaflets critical of the Council of Guardians were distributed. Undeterred, the council blocked attempts in 1984 and 1985 to revive measures for nationalization of foreign trade and for land distribution, and it vetoed a measure for state control over the domestic distribution of goods. As economic conditions deteriorated in 1985, there was an attempt in the Majlis to unseat the prime minister. Khomeini, however, intervened to maintain the incumbent government in office.

These differences over major policy issues persisted even as the Revolution was institutionalized and the regime consolidated its hold over the country. The differences remained muted, primarily because of Khomeini's intervention, but the debate threatened to grow more intense and more divisive in the post-Khomeini period. Moreover, while in 1985 Montazeri appeared slated to succeed Khomeini as Iran's leader, there was general agreement that he would be a far less dominant figure as head of the Islamic Republic than Khomeini has been.

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Source: U.S. Library of Congress