The gray zone is the contested arena that sits between routine statecraft and open warfare. It is defined by a paradox: it is an area of intense competition where actors use every tool of national power to achieve strategic gains, yet they deliberately remain below the threshold that would trigger a conventional military response. While the term gained popularity in the mid-2010s—largely in response to Russia’s 2014 annexation of Crimea—the logic itself is as old as the Trojan Horse.
The Logic of Ambiguity
The primary symmetry of the gray zone is the exploitation of Western legal and political frameworks. Liberal democracies typically operate with a binary view of the world: a state is either at peace or it is at war. Gray zone actors, such as Iran and Russia, treat this distinction as a vulnerability. By using “little green men” without insignia or launching cyberattacks that allow for plausible deniability, they create a state of “neither/nor” that paralyzes traditional decision-making.
Strategists like Frank Hoffman argue that these actors target the “seams” between government departments. A cyberattack on a hospital might be a criminal matter, a public health crisis, or an act of war. Because it is all three, responsibility is diffused, and the response is slowed.
This involves making small, incremental changes to the status quo—such as building artificial islands in the South China Sea—none of which alone justifies a war, but which collectively result in a major strategic shift over time.
Economic Coercion: This includes the weaponization of trade and energy. By creating dependencies, a state can exert political pressure on a rival without ever firing a shot.
Why the Gray Zone is Expanding
The prevalence of gray zone competition is a testament to the effectiveness of conventional and nuclear deterrence. Because a direct conflict between major powers is too costly, competition shifts into the shadows. Technology has accelerated this logic. The internet allows a state to interfere in a rival’s elections or sabotage its infrastructure from thousands of miles away with minimal risk.
In the Iranian context, this takes the form of the “Axis of Resistance.” Iran provides the hardware and doctrine, but the actual friction is generated by proxies. This interplay allows Tehran to project power across the Middle East while maintaining a “buffered” distance from the consequences.
The Defender’s Dilemma
For the United States and its allies, the gray zone presents a “defender’s dilemma.” If a democracy responds to a gray zone provocation with kinetic force, it risks being labeled as the aggressor and escalating the conflict. If it does not respond, it signals weakness and allows the adversary to continue its incremental gains.
Effective defense in this space requires what experts call “whole-of-society resilience.” This means that the defense of a nation no longer rests solely with the military, but also with private tech companies, election officials, and the general public’s ability to recognize disinformation.
Michael Eisenstadt argues that the gray zone is the cornerstone of the Iranian way of war. His recent analysis of Operation Epic Fury suggests that while the United States and Israel focus on the destruction of hardware, the Iranian regime focuses on the gray matter of Western policymakers. He contends that Tehran views conflict as a continuum rather than a binary state of peace or war. This perspective allows the regime to manage risk by pacing its activities so that its adversaries do not overreact or escalate to all-out war.
The Mechanism of Threshold Manipulation
The gray zone works by leveraging a conceptual asymmetry. Eisenstadt observes that American decisionmakers often fear a local clash might spiral into a regional catastrophe. Iran uses this fear to its advantage. By keeping its retaliation—dubbed Operation True Promise IV—within specific bounds, the regime attempts to preserve its survival while imposing costs on its enemies.
Tehran uses a mix of kinetic missile strikes, cyber disruptions, and proxy activations. In the current conflict, they have targeted U.S. bases in Bahrain, Qatar, and the UAE while using drones to saturate air defenses.
Eisenstadt points out that Iran uses massed, low-cost loitering munitions. This forces the U.S. and its partners to deplete limited stocks of expensive interceptors, hitting the “Munitions” constraint mentioned by JP Morgan.
Recent reports indicate the IRGC is dispersing mobile launchers into schools and hospitals. This is a classic gray zone tactic designed to create a “moral hazard” for Western planners who must weigh the military gain of a strike against the political fallout of civilian casualties.
Strategic Culture and the Legacy of War
That Iran avoids a direct conventional fight is a deeply rooted feature of its strategic culture. Eisenstadt traces this back to the Iran-Iraq War. The regime learned that “imposed wars” are existential threats. Therefore, they developed a repertoire of deniable and incremental actions to advance their agenda without triggering a repeat of that trauma.
The Post-Khamenei Logic
The killing of Ayatollah Ali Khamenei on February 28 has added a new logic to the gray zone. Eisenstadt and his colleagues at WINEP are now analyzing how a decapitated regime maintains control. They observe that while centralized command and control may be degraded, the “Axis of Resistance” operates with a level of semi-autonomy. This means that even if the head of the state is gone, the proxy network continues to function, potentially escalating on its own terms to avenge the leader.
The “Three M’s” logic from JP Morgan and Eisenstadt’s operational focus converge on one point: the conflict’s end will likely not be a formal surrender. Instead, it might be a gradual reduction in the “rhythm” of strikes as both sides reach the limits of their resources and political will.
Michael Eisenstadt and his colleagues at the Washington Institute are monitoring the transition as Article 111 of the Iranian constitution has been invoked following the death of Ayatollah Ali Khamenei. This article establishes a three-person council—composed of the president, the judiciary chief, and a cleric from the Guardian Council—to manage the Supreme Leader’s duties temporarily.
The Rise of Mojtaba Khamenei
That Mojtaba Khamenei is the frontrunner for succession introduces a new logic to Iran’s gray zone posture. Eisenstadt’s recent analysis suggests that while the elder Khamenei was defined by a cautious, deeply rooted strategic culture born from the “meat grinder” of the Iran-Iraq War, Mojtaba may be more risk-acceptant.
Mojtaba’s candidacy is heavily backed by the Islamic Revolutionary Guard Corps. Experts like Farzin Nadimi and Patrick Clawson argue that this relationship might lead to “extreme strategic options.” Without the established authority of his father, Mojtaba may feel compelled to authorize high-visibility strikes or rapid nuclear advancement to prove his nationalist credentials and consolidate power.
The transition is not seamless. Hardliners like Ali Larijani, secretary of the Supreme National Security Council, reportedly resist Mojtaba’s rise. In gray zone terms, this internal logic often leads to “outbidding,” where different factions launch uncoordinated proxy attacks to demonstrate their revolutionary zeal.
A new Defense Council created in 2025 to centralize military decision-making was largely decimated alongside the Supreme Leader. This loss of institutional memory creates a serious leadership continuity problem. Eisenstadt views this as a dangerous period where tactical “gray matter” errors by new, untested commanders could inadvertently trigger the “all-out war” that the previous regime spent decades avoiding.
Operational Reality Under Epic Fury
Despite the death of the Supreme Leader, the IRGC’s day-to-day asymmetric operations remain functional. Eisenstadt notes that while the United States and Israel are “winning” by metrics like the destruction of 17 naval vessels and half of Iran’s ballistic missile sites, the regime’s cyber and proxy capabilities remain largely intact.
Cyber remains a key asymmetric tool. WINEP experts warn that the new leadership will likely expand retaliatory cyberattacks against regional energy and logistics networks to mirror the kinetic losses they are suffering.
If the central government fragments, proxies like the Houthis or Iraqi militias might begin to act autonomously. This would break the “pacing and spacing” symmetry that Michael Eisenstadt has long described as the hallmark of Iranian gray zone strategy, leading to a much more volatile and unpredictable regional environment.
Michael Eisenstadt argues that the gray zone relies on a logic of paralysis. By operating in the space between peace and war, Iran forces Western leaders into a state of deliberation that Tehran uses as a shield. Professional strategists and the traditional national security community struggle with this because they view the gray zone as a legal and procedural problem.
The Decisionist Response
Donald Trump does not view the gray zone through a procedural lens. His approach to Operation Epic Fury suggests he views the gray zone as a bluff to be called rather than a puzzle to be solved. While analysts like Eisenstadt describe the gray zone as a sophisticated symmetry of power, Trump treats it as a vacuum that exists only because of American hesitation.
The Trump administration has effectively ended the “neither/nor” state by initiating what he calls “major combat operations.” That he authorized the decapitation of the Iranian leadership on February 28 shows a willingness to skip the incremental escalation ladder that gray zone actors rely on.
Gray zone tactics like “little green men” or deniable cyberattacks depend on the target’s unwillingness to assign blame without absolute proof. Trump’s rhetoric ignores these nuances. He recently stated that the objective is “unconditional surrender,” regardless of whether a specific provocation was deniable or not.
Where the “blob” seeks to manage the gray zone through sanctions and diplomacy, this administration uses what the 2026 National Defense Strategy calls “overwhelming force to maximize deterrence.” The launch of Operation Epic Fury after only weeks of mobilization illustrates a preference for rapid, decisive action over the “slow-motion” conflict that Michael Eisenstadt has long chronicled.
Strategic Risks of the Decisionist Path
Eisenstadt and other WINEP fellows point out that while a decisionist approach can break the gray zone stalemate, it introduces new risks that the previous cautious logic was designed to avoid.
By jumping directly to regime-level strikes, the U.S. may have removed the “off-ramps” that typically allow for a negotiated settlement. If the Iranian regime feels it is facing an existential threat, it may abandon its gray zone restraint and pivot to the “extreme strategic options” that Eisenstadt warns about.
The killing of Ali Khamenei has created a power vacuum. While the “process guys” fear the lack of a clear successor, the decisionist view is that any successor will be too weak to maintain the gray zone architecture. However, as Eisenstadt observes, this can lead to “outbidding” by IRGC factions who may launch uncoordinated attacks to prove their loyalty to the revolution.
That Trump is “ahead of schedule” in dismantling Iranian infrastructure suggests he believes the gray zone only exists when the United States allows it to. He is betting that by applying enough kinetic pressure, the “neither/nor” state will collapse into a clear American victory.
Gray Zone experts observe that the death of Ayatollah Ali Khamenei has forced Hezbollah into a choice between ideological suicide and local survival. For years, the group maintained that an attack on the Supreme Leader was a “red line” that would trigger an immediate, unrestricted response. Now that this line has been crossed during Operation Epic Fury, the group’s leadership—currently led by Naim Qassem—finds itself in a strategic trap.
The Survival Paradox
That Hezbollah launched a rocket barrage on March 1, immediately following the confirmation of Khamenei’s death, signals a commitment to its role as the “vanguard” of the Axis of Resistance. However, Eisenstadt and other WINEP fellows argue that this response is more performative than strategic. The group is weaker than at any point in decades.
The collapse of the Assad regime in late 2024 severed Hezbollah’s logistical arteries. Without the Syrian corridor, the group cannot easily replenish the precision-guided munitions it uses during these escalations.
In Beirut, the Lebanese government has taken an unprecedented step by announcing a formal ban on Hezbollah’s military activities. Prime Minister Nawaf Salam is attempting to assert state authority to prevent Lebanon from being pulled into a “wider regional war” while the country is still fragile from the 2024 conflict.
Beyond the loss of their patron in Tehran, Hezbollah’s own mid-level command structure remains severely degraded. WINEP reports suggest that internal disagreements are mounting among the remaining senior figures about whether to follow the “Vilayat-e Faqih” (now in flux under Mojtaba Khamenei) or prioritize their own political standing in Lebanon.
Operational Interpretation: Preemption vs. Retaliation
Eisenstadt identifies a shift in the group’s tactical logic. Hezbollah officials likely believe they are next on the “list” for elimination following the decapitation strikes in Iran. By striking now, they are not necessarily trying to save the Iranian regime—which is already in a state of chaotic reorganization—but are trying to preempt a full-scale Israeli ground offensive.
Despite significant losses, the elite Radwan Unit still maintains approximately 5,000 members. However, they are currently positioned mostly north of the Litani River, reflecting a defensive rather than offensive posture.
WINEP analysts argue that Hezbollah’s intervention depends on whether they view the current campaign as a “regime change” operation. If the United States and Israel continue to state their goal is the fall of the Islamic Republic, Hezbollah may feel it has no choice but to launch its remaining 1,000 suicide drones and missile stockpiles, even if it brings about its own destruction.
The Successor’s Shadow
The potential rise of Mojtaba Khamenei complicates Hezbollah’s calculus. While Ali Khamenei was a known quantity with a predictable strategic logic, Mojtaba’s strong ties to the IRGC suggest he might demand more “extreme strategic options” from his proxies. Hezbollah’s leadership is now watching Tehran to see if the new council will provide the same financial and “spiritual” cover that once justified their existence as a state-within-a-state.
Michael Eisenstadt and specialists at the Sana’a Center for Strategic Studies observe a significant divergence between Houthi rhetoric and Houthi action. While the group’s leader, Abdelmalek al-Houthi, called the killing of Ali Khamenei a “heinous crime” and held a “million-strong” rally in Sana’a on March 1, the group has remained uncharacteristically reticent on the military front.
In the language of alliance theory, this suggests that the Houthis are moving from a “proxy” relationship to a “partner” logic where their own local survival outweighs their ideological debt to Tehran.
The Logic of Strategic Silence
Eisenstadt notes that the Houthis were the only Axis of Resistance member to fully participate in the June 2025 conflict, yet their current inaction during Operation Epic Fury is striking. Several factors define this new Houthi symmetry:
Unlike Hezbollah, which is fighting for its immediate geographic security, the Houthis sit far from the primary theater of the “Epic Fury” strikes. Analysts argue that the Houthis likely view the decapitation of the Iranian leadership as a warning. If they resume Red Sea attacks, they risk becoming the next target for the same high-precision “Roaring Lion” strikes that eliminated the Iranian Supreme Leader.
The Sana’a Center points out that the “fate of Iran” is not a popular cause in Yemen on par with the Palestinian cause. While the Houthis gained massive legitimacy for their Red Sea campaign, they risk losing that domestic support if they drag Yemen into a catastrophic war with the U.S. and Israel just to avenge a foreign leader.
The Houthis are still eyeing a negotiated settlement with Saudi Arabia. Riyadh has used the current chaos to consolidate control over Yemen’s internationally recognized government. If the Houthis strike now, they likely permanently kill the “roadmap” for financial support and reconstruction they desperately need.
Autonomy and the Successor Problem
The rise of Mojtaba Khamenei creates a unique “agency” problem for the Houthis. While the elder Khamenei was the “great mujahid” who provided the technology and spiritual authority, Mojtaba is an unproven figure.
Reports suggest that the Houthis have already used a significant portion of their advanced Iranian-supplied missiles. With the “land bridge” from Iran under heavy fire and the Iranian Navy largely destroyed, the group must decide if they can afford to expend their remaining munitions without a guaranteed resupply from a chaotic Tehran.
Michael Eisenstadt argues that the Houthis are likely waiting to see if the new leadership council in Tehran can maintain its grip. If the Iranian regime fragments, the Houthis may choose to reposition themselves as an independent regional power rather than a subordinate element of an “Axis” that can no longer protect its own head.
The Operational Outlook
WINEP fellows suggest that any Houthi escalation will likely be “calibrated and deniable”—consistent with the gray zone logic they have mastered. They may shift from high-profile missile attacks to sea mines in the Bab al-Mandab strait, which allows them to disrupt global shipping while maintaining a degree of plausible deniability to avoid the full weight of Operation Epic Fury.
While Michael Eisenstadt provides the operational map for Iran’s specific behavior, several other strategists define the broader architecture of the gray zone. These experts often disagree on whether the gray zone is a new form of warfare or simply a rebranding of classic coercion.
The Theoretical Architects
Antulio Echevarria: A professor at the U.S. Army War College, Echevarria argues that the gray zone is an outgrowth of strategies aimed at exploiting the West’s legalist view of war. He suggests that rival powers use the space between peace and war to achieve positional advantages without triggering a formal military response. In his view, the gray zone is a combination of coercion and deterrence where the goal is to outposition rather than subdue the opponent.
Frank Hoffman: A distinguished research fellow at the National Defense University, Hoffman is best known for developing the concept of hybrid warfare. He argues that modern adversaries simultaneously use conventional weapons, irregular tactics, terrorism, and criminal behavior to achieve political objectives. While Eisenstadt focuses on the Iranian application, Hoffman provides the general logic for how these fused threats create a unique planning dilemma for Western militaries.
David Kilcullen: An Australian strategist and former advisor to General David Petraeus, Kilcullen examines the gray zone through the lens of “conceptual envelopment.” He contends that countries like China and Iran do not distinguish between states of war and peace. Instead, they use subversive, hybrid, and clandestine techniques to undermine Western influence over decades. He recommends a Byzantine approach for the West, focusing on resilience and long-term rearguard actions rather than seeking a decisive military victory.
The Operational and Economic Experts
Seth Jones: As a senior vice president at the Center for Strategic and International Studies (CSIS), Jones focuses on the rise of irregular warfare. His work, particularly in Three Dangerous Men, examines how Russia, China, and Iran use cyber attacks, proxy forces, and disinformation to compete with the United States. He often bridges the gap between Eisenstadt’s technical military focus and the broader geopolitical struggle, highlighting how these gray zone activities strain the U.S. defense industrial base.
Elisabeth Braw: A senior fellow at the Atlantic Council, Braw specializes in “the defender’s dilemma.” She focuses on how gray zone aggression targets the globalized economy and civil society. While Eisenstadt looks at missiles and militias, Braw looks at the subversion of companies, underwater cables, and shipping routes. She argues that the interconnectedness of the modern world provides adversaries with unethical but effective tools to harm liberal democracies without using “bombs or bullets.”
Regional Specialists
Arash Azizi: A historian and author of Shadow Commander, Azizi provides the biographical and political context for Iran’s gray zone operations. He focuses on how individuals like Qassem Soleimani built the institutional framework for proxy warfare. His work is essential for understanding the internal Iranian logic that Eisenstadt interprets through a military lens.
That these experts overlap suggests the gray zone is the primary theater of 21st-century competition. Where Eisenstadt provides the technical briefing on Iranian hardware, analysts like Braw and Kilcullen provide the strategic and economic context for why those tools are used in the first place.