Here we are trying to identify the necessary premise.
Due to the bureaucracy's system of expanding its regulations in light of new complaints, therefore the bureaucracy will have an ever-expanding system of regulations. This is what the argument boils down to.
The necessary premise that is missing from this argument is that the bureaucracy will never stop receiving new complaints that will require expansion of their regulations. Otherwise, how can we conclude that the bureaucracy will always be expanding its regulations?
Answer choice D presents an odd premise. It gives a two-way conditional statement for what it takes in order for a bureaucracy to reach its primary goal and in order for the system to be constantly expanding. But this isn't necessary to conclude that it will be constantly expanding.
I hope this helps. Please let me know if you have any other questions!