In my opinion, part of it is simple: laws don’t go away. Problems also don’t go away just because you pass some laws, especially if those laws are taking time to be properly implemented, are insufficiently enforced, or even are being effective but will take a long time to actually resolve the problem they’re aimed at.
Politicians, however, continue to feel pressured to do something about these problems that still exist. They find it very difficult to point at existing laws and say ‘this is dealing with that problem, there’s nothing more that can be done; it needs time to resolve’ because of course their opponent will go ‘congressman Bob isn’t DOING ANYTHING about problem X! I’ll do something!’ and the public will vote congressman Bob out and his opponent in. Furthermore, properly studying problem X and figuring out what the best thing to do about it can take years. Longer than Congressman Bob’s term in office. Can he afford to say ‘we’re studying the problem, and in eight years, when we have an understanding of what to do about it, we’ll pass some laws’? Usually not.
So laws get passed, and while some of them are good and effective, many of the laws are pointless, or the wrong thing to do, or perhaps even make things worse, or simply divert resources away from the ones that would be effective, if resources were focused on those. Not to say that the laws have made things worse in general; many things have improved…but they have done so inefficiently and at much greater cost than they could have if the politicians didn’t have constant pressure to DO SOMETHING about problems that are either still in need of study to decide what to do, or about problems that are already being resolved by existing laws and regulations, but slowly.
The only answer I could see to make things better in this regard would be to have a mandatory review of all laws every certain period of time (say, 25 years) and then require the legislators to re-affirm the law after receiving the report on its effectiveness; if the law doesn’t pass again, it is automatically repealed. This would require each generation of legislators to continue to re-affirm that this is a law they want to maintain. I think it would be both useful and important to keep re-examining laws for effectiveness…and also to make sure people really still want a thing to be the law. Forcing each generation of politicians to go on the record as re-affirming old laws, or refusing to do so, would be a good way to make sure they are constantly required to do things that show their constituents exactly where they stand on these issues.
I also wonder if it wouldn’t significantly reduce the effectiveness of lobbying/spending money on laws. Or at least, mitigate its harm. If each industry had to continually re-buy politicians to re-affirm the laws every 25 years or whatever, it might make it a little more difficult. And it would definitely make it more difficult for the public to simply forget about an issue after the law has passed.