[Iran Watch #12] Iran’s Shadow Cabinet – Who Rules When the Supreme Leader Hides?

- July 03, 2025

As Khamenei retreats from public view, Iran is ruled by a shadow cabinet of clerics, IRGC officers, and loyalists. Who really holds power in Tehran now?

“Four Iranian men sit in a formal setting, including a cleric in black turban and robe, with serious expressions suggesting a high-level meeting.”

📌 Table of Contents

Introduction – When the Leader Vanishes
The Deep State in Iran – More Than Khamenei
Key Figures in the Shadow Cabinet
The Role of Mojtaba Khamenei – Hidden Heir?
Clerical Approval vs. Military Control
Crisis Management Teams – Who Holds Real Power?
Foreign Policy and Intelligence – The Invisible Hands
Public Messaging and State Media Apparatus
FAQ – Shadow Cabinet and Succession Questions
Conclusion – The Regime Without a Face

1. Introduction – When the Leader Vanishes

As Supreme Leader Ali Khamenei retreats to an underground command post amid escalating conflict and threats to his life, Iran is being governed by a clandestine network of advisors, clerics, and military officials—what many now call the “Shadow Cabinet.” This informal structure has long existed to protect continuity in times of crisis, but it has now become the de facto ruling body in Tehran.

2. The Deep State in Iran – More Than Khamenei

Iran’s governance does not rest solely on the Supreme Leader. A complex web of institutions—such as the Guardian Council, Assembly of Experts, Expediency Council, and IRGC leadership—works in tandem with trusted clerics and bureaucrats. This “deep state” enables the system to survive even if the leader is incapacitated.

3. Key Figures in the Shadow Cabinet

Ali Shamkhani (former Supreme National Security Council head): Oversees military-political coordination.
Mojtaba Khamenei: Acts as intermediary between his father and the IRGC; may control intelligence briefings.
Gholam-Hossein Mohseni-Ejei: As Chief Justice, ensures regime loyalty within the judiciary.
Ebrahim Raisi (possibly incapacitated): His aides continue to function within the executive bureaucracy.
Ahmad Khatami and Mohammad Yazdi (Guardian Council): Legal gatekeepers and ideological enforcers.

Silhouetted comparison of an elderly Iranian cleric and a young military officer, symbolizing Iran's generational power shift.

4. The Role of Mojtaba Khamenei – Hidden Heir?

Though not publicly named successor, Mojtaba’s proximity to his father and ties to the IRGC give him real influence. He is believed to be orchestrating day-to-day affairs via proxy clerics and confidants. Critics call this dynastic, while supporters see it as a temporary stabilization measure.

5. Clerical Approval vs. Military Control

Key decisions are now reportedly made by consensus among trusted clerics and IRGC commanders. While clerical legitimacy is vital, control of arms and intelligence now tips the balance toward the military apparatus. This dual structure mimics historical “Council Rule” models in wartime.

6. Crisis Management Teams – Who Holds Real Power?

National Security Council Subgroup: Focuses on military retaliation and internal suppression.
Economy Crisis Cell: Oversees oil exports via illicit networks, currency control, and rationing.
Digital Command Unit: Operates under Mojtaba’s indirect supervision; handles internet blackouts and propaganda.

These cells often bypass formal government ministries and report directly to a closed council around Mojtaba and Shamkhani.

7. Foreign Policy and Intelligence – The Invisible Hands

With Foreign Minister Amir-Abdollahian mostly sidelined, foreign policy has reportedly shifted to IRGC intelligence agents and the Quds Force's remaining leadership. Negotiations with Russia, China, and proxy groups are managed through military channels rather than the Foreign Ministry.

8. Public Messaging and State Media Apparatus

The Islamic Republic of Iran Broadcasting (IRIB), state Telegram channels, and semi-official outlets like Tasnim and Fars News are coordinated to suppress dissent, project strength, and vilify opposition. Content is pre-cleared by the Supreme Leader’s Office, but with his retreat, this task now falls to Mojtaba’s media advisors.

9. FAQ – Shadow Cabinet and Succession Questions

Q1. Is the Shadow Cabinet officially recognized?
No. It is an informal network activated during national security crises.

Q2. Why is Mojtaba not named publicly?
Due to fears of triggering unrest and criticism of hereditary rule.

Q3. What is Ali Shamkhani’s current role?
Unofficial national coordinator for security and defense strategy.

Q4. Can this system last without Khamenei?
Only in the short term. Without formal legitimacy, internal fractures may widen.

Q5. Is this a military junta?
Not in form, but functionally close—IRGC and clerics share de facto power.

10. Conclusion – The Regime Without a Face

Iran’s governance is now run not by visible presidents or ministers, but by an opaque structure of loyalists protecting the status quo. Whether this “shadow cabinet” can preserve the regime or merely delay its unraveling depends on cohesion, repression capability, and the Iranian people's willingness to endure or resist. When the Supreme Leader hides, the state survives—but not necessarily the same nation.

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