Who is calling the shots in Iran?

Following the last round of talks between the United States and Iran in Islamabad, Iran’s foreign minister and negotiator Abbas Araghchi declared in a post on X on April 17 that the Strait of Hormuz was “completely open”. This came after he also signalled that his government could be flexible over the issue of nuclear enrichment as well as Iran’s support for its proxies in the region.

Then came an abrupt correction. Mohammad Bagher Zolghadr, a former commander in the Islamic Revolutionary Guards Corps (IRGC) who was recently appointed as secretary of the Supreme National Security Council, is understood to have complained to the IRGC, submitting a report that criticised Araghchi for “deviation from the delegation’s mandate”.

The negotiating team was called back to Tehran. Araghchi was attacked by state-run media which said his post had “provided the best opportunity for Trump to go beyond reality, declare himself the winner of the war and celebrate victory.” And the Strait of Hormuz was declared closed.

This episode demonstrates the new reality in the Islamic Republic, where the IRGC increasingly calls the shots in all matters of statecraft and government. The rest of the state is a façade at most.

Over the six weeks of war, Iran’s former leadership has been decimated: the supreme leader, Ali Khamenei, was killed in a US strike on the first day of US and Israeli attacks. Many of his senior colleagues have also been killed. Iran is no longer best understood as a state with a powerful militia. It has become, more precisely, a powerful militia with a state – a political order with the IRGC at its core.

The other traditional centres of power – the government and the clergy – have effectively been relegated to mere front organisations. Amid the fog of war, even the new supreme leader, Mojtaba Khamenei, appears merely as a legitimising ornament. In any case, Khamenei is reported to have been severely injured in the attack that killed his father and is apparently taking no part in government.

So who is running the country? The answer points unmistakably to the IRGC and its leader, Ahmad Vahidi.

Guardians of the revolution

The IRGC was created after the 1979 revolution, precisely because Ayatollah Ruhollah Khomeini and his allies did not trust the conventional state apparatus to defend the revolution. Over time it grew beyond its role as guardians of the revolution into an all-encompassing, all-channel network. It became a military, an intelligence service, an economic conglomerate and a regional expeditionary network. Its internal security force, the Basij, gave it an arm of mass social control inside Iran. The Quds force was set up to export the revolution across Iran’s proxies in Lebanon, Iraq, Syria, Yemen and beyond.

Far from destroying this architecture, sanctions deepened it. They led to the creation of front companies linked to the IRGC doing illicit deals and operating circuits of patronage that enriched those closest to the centre of power. What emerged was a parallel state that gradually outgrew the formal one.

The IRGC is organised as a network with a core and a periphery. Its central hub decides strategy. This is surrounded by a network of decentralised cells capable of operating with a high degree of autonomy. This is called Iran’s “mosaic defence doctrine”. And it was built to operate precisely the way it is now: to keep fighting amid attempts at decapitation and disruption.

A new leader emerges

After IRGC chief Mohammad Pakpour was killed on the opening day of the conflict, Ahmad Vahidi, a former interior minister and a founding member of the IRGC, has emerged to take his place. After being appointed in an emergency capacity after his predecessor was killed, he has consolidated effective control as the civilian presidency has been hollowed out.

With the new supreme leader apparently incapacitated and the clergy sidelined, Vahidi and his group of allies – IRGC commanders and security council hardliners such as Ali Akbar Ahmadian and Mohammad Bagher Zolghadr – have set the mandate and red lines for the ceasefire talks.

The IRGC’s red lines are clear: it will not surrender uranium enrichment altogether; it wants to preserve its missile program and the axis of resistance; it wants sanctions to lifted and access to Iranian assets overseas that are presently frozen. Room for negotiation only exists on technical details about enrichment levels, timelines for lifting sanctions or the language of any deals that are agreed.

In times of war, states tend to centralise as civilian institutions shrink. Hard men tend to rise, especially after many of the influential political pragmatists, such as Ali Larijani, the former secretary of the security council, were deliberately taken out by Israel.

The IRGC was not suddenly conjured by this war, but prepared by decades of institutional entrenchment, economic capture and delegated coercion. The IRGC’s military dictatorship in the making needed this war to consolidate its influence over competing nodes in the network – most importantly the clergy.

This has profound consequences for the negotiations. Instead of being straightforward bargaining between statesmen, Washington’s real estate moguls turned negotiators are speaking to Iranian counterparts who are on a short lead held by the IRGC. Progress in negotiations should not be judged by what Iran’s diplomats say in public, but by what the guard allows to be implemented in practice.

Trump and Israel’s failed decapitation strategy leaves a potent system in place that feels emboldened by the desperation in the White House to find a diplomatic off-ramp. To think that this war-hardened system of hardliners will capitulate is wishful thinking.

The past few days have made it clear that the IRGC is now a militia with a state using the civic and military institutions of the Islamic Republic as its outer skin. While there is room for negotiation to build a mutually acceptable deal, the US administration needs to be realistic about where the IRGC’s red lines are and what card it actually has to play against a resilient network with a very high threshold for pain.