Who Really Rules Iran? Inside the Islamic Republic’s Power Structure

Who Really Rules Iran? Complete Guide to Iran's Power Structure (2025)

Discover who truly controls Iran behind the scenes. From the Supreme Leader to the Revolutionary Guards, explore the Islamic Republic’s hidden power web in this 5000-word expert article.

Introduction: Why Understanding Iran’s Power Structure Matters

Iran is often misunderstood in global media and political discourse. With its complex system of government—part theocracy, part democracy—the question many outsiders ask is: Who really rules Iran?

The answer isn't simple. Power in Iran doesn’t lie with just one person or institution. Instead, it's divided across a layered structure of clerical and elected offices, security institutions, and economic elites—all revolving around the unelected but immensely powerful Supreme Leader.

In this detailed guide, we unpack Iran’s intricate political hierarchy to reveal who truly pulls the strings in the Islamic Republic as of 2025.

1. The Origins of the Islamic Republic

The Islamic Republic of Iran was established in 1979 after the Islamic Revolution led by Ayatollah Ruhollah Khomeini, overthrowing the monarchy of Shah Mohammad Reza Pahlavi. Khomeini introduced Velayat-e Faqih—a doctrine of guardianship of the Islamic jurist—as the foundation of Iran’s political system.

This ideology gave rise to a unique hybrid state, blending Shia Islamic jurisprudence with modern republican governance. But in practice, clerical elites hold ultimate authority over all state functions.

2. The Supreme Leader: Iran’s Ultimate Authority

At the apex of Iran’s political pyramid is the Supreme Leader (Rahbar). Currently Ayatollah Ali Khamenei, the Supreme Leader is the single most powerful figure in Iran, serving as both the religious leader and commander-in-chief.

Key Powers of the Supreme Leader:

Controls military and intelligence agencies, including the IRGC and regular army
Appoints the head of judiciary, state broadcasting chief, and half of the Guardian Council
Has veto power over all major government decisions
Directly influences foreign policy, especially toward the US, Israel, and Saudi Arabia
Appoints members to the Expediency Council

Though unelected by the public, he is appointed by the Assembly of Experts and serves for life.

3. The President: Elected But Limited

Iran’s president is elected every four years by popular vote and serves a maximum of two terms. While this gives the illusion of democracy, the president’s powers are significantly restricted.

Roles of the President:

Oversees the economy, education, health, and transport
Implements domestic policy
Appoints cabinet ministers (subject to parliamentary approval)

But the president cannot:

Control the military or nuclear policy
Make final decisions on foreign affairs
Appoint judiciary or intelligence heads

For example, President Ebrahim Raisi (2021–present) is considered loyal to the Supreme Leader and is often seen as merely executing the Leader’s vision.

4. The Guardian Council: The Vetting Gatekeepers

This powerful 12-member body is half appointed by the Supreme Leader and half nominated by the judiciary and approved by parliament. The Guardian Council:

Vets all candidates running for public office
Has the power to reject election results
Reviews and can veto parliamentary legislation if it contradicts Islamic law or the constitution

Essentially, it ensures that no opposition to the Supreme Leader enters power.

5. The Assembly of Experts: Theoretical Oversight

Composed of 88 clerics elected every 8 years, the Assembly of Experts is tasked with appointing and overseeing the Supreme Leader. In theory, they can remove him. In practice, however:

All candidates are vetted by the Guardian Council
Members are largely loyal to the current system
It has never challenged the Supreme Leader since 1989

Still, this assembly could become powerful during a leadership succession crisis.

6. The Islamic Revolutionary Guard Corps (IRGC): Iran’s Shadow Power

No institution has grown in power and wealth like the IRGC. Originally founded to protect the revolution, the IRGC has transformed into a military, economic, and political empire.

IRGC Influence Includes:

Controlling major construction, oil, and telecom industries
Running elite military and intelligence units like the Quds Force
Heavily influencing foreign policy in Syria, Iraq, Lebanon, and Yemen
Operating its own media networks

The IRGC is loyal only to the Supreme Leader and is untouchable by civilian oversight.

7. The Judiciary: Controlled Justice

Appointed by the Supreme Leader, the judiciary enforces laws consistent with Islamic principles. It frequently:

Jails political dissidents
Prosecutes journalists and activists
Oversees morality policing

The judiciary is not independent and acts as a tool to suppress opposition.

8. The Expediency Council: The Quiet Balancer

This 40-member body mediates between the parliament and the Guardian Council. It also advises the Supreme Leader and may act as a shadow cabinet.

Though not widely known, the council includes powerful clerics and technocrats who shape key policies behind closed doors.

9. The Parliament (Majles): Power With Limitations

Iran’s parliament is elected by the public, but candidates are heavily filtered by the Guardian Council. Its functions include:

Debating and passing legislation
Approving the president’s cabinet
Summoning ministers for questioning

However, any law it passes can be vetoed by the Guardian Council. Thus, it has little power on core security or foreign affairs.

10. The Role of the Clergy and Religious Seminaries

Shia clerics and seminaries based in Qom hold moral and social influence. Many clerics occupy top state positions or advise ministries. Their support is crucial for regime legitimacy.

Clerical networks also control charities, schools, and endowments, serving as a parallel economy and power source.

11. Iran’s Deep State and Bonyads (Charitable Foundations)

Bonyads are massive religious foundations that control:

Billions in assets
Real estate and construction
Businesses exempt from taxation

These bonyads are opaque, report only to the Supreme Leader, and are often accused of corruption and favoritism.

They fund the regime’s loyalists and further entrench the deep state.

12. Foreign Policy: Who Makes the Decisions?

Iran’s foreign policy, especially concerning the US, Israel, and nuclear weapons, is controlled by the Supreme Leader, not the president.

The IRGC’s Quds Force implements military strategy in the region, while the Supreme National Security Council, headed by the president, proposes policies. But final decisions rest with the Supreme Leader.

13. Public Opinion and Civil Society: Any Real Influence?

While Iran has vibrant civil society movements—especially among youth, women, and students—these groups have little formal power.

Protests (like those after Mahsa Amini’s death in 2022) can shake the regime but are often crushed violently. The state tightly controls media, internet, and NGOs.

14. Power Struggles and Factions

Despite centralized power, internal factionalism is real. Iran’s ruling elite includes:

Hardliners (loyal to the Supreme Leader and IRGC)
Pragmatists (interested in reform, like former presidents Rouhani or Khatami)
Economic technocrats (who seek modern solutions but must appease clerical interests)

These groups clash over policy, but ultimate authority still resides with Khamenei and his close circle.

15. Who Really Rules Iran? Final Verdict

To summarize Iran’s power structure:

Institution/Person	Real Power Level	Reports To
Supreme Leader	✅✅✅✅✅	No one
IRGC	✅✅✅✅	Supreme Leader
Guardian Council	✅✅✅	Supreme Leader
President	✅✅	Supreme Leader
Parliament	✅	Guardian Council vetoes
Judiciary	✅✅	Supreme Leader
Assembly of Experts	✅	Controlled by GC

The real rulers of Iran are:

Supreme Leader Ayatollah Khamenei
The IRGC and its economic arms
Clerical elites loyal to the theocratic structure

Democratic elements exist but serve more as facades than sources of real power.

Conclusion

Iran is governed not by a single ruler or democratic process but by a complex, authoritarian system that concentrates power in unelected hands. Understanding this system is crucial for anyone trying to analyze Iran's domestic policies, foreign actions, or its people’s struggle for change.

As of 2025, unless the Supreme Leader’s power is meaningfully challenged, Iran will remain an Islamic theocracy disguised in a republican shell—where real decisions are made behind closed doors, not ballot boxes.

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