US narrative on the removal of Ali Shamkhani

After a decade surviving Iran’s fractious politics, Ali Shamkhani was removed as secretary of the Supreme National Security Council (SNSC), the highest body in charge of foreign policy and national security, on May 22, 2023.

The former rear admiral, a young hero during the eight-year Iran-Iraq war who rose to become minister of defense in the 1990s, had served three presidents from rival factions as head of the SNSC. He was pushed aside in favor of Rear Admiral Ali Akbar Ahmadian, a senior Revolutionary Guards officer.

The reshuffling, which followed the execution in January of a former Shamkhani aide charged with treason, could significantly impact deliberations at the SNSC, which has only 12 permanent members.

“Shamkhani is considered a balancing factor in the decision-making process in Tehran,” Danny Citrinowicz, a fellow at the Institute for National Security Studies in Tel Aviv, told The Iran Primer.

Shamkhani was widely regarded to be pragmatic on contested issues, such as negotiations with the United States over Iran’s nuclear program. He was a moderate voice who called for discussions and dialogue, Alicia Kearns, British House of Commons Foreign Affairs Committee chair, told the BBC in January 2023.

Shamkhani has long been the most senior ethnic Arab in Iran’s government, largely dominated by Persians and other groups. He earned the trust of officials ranging from Supreme Leader Ayatollah Ali Khamenei, a hardliner, to President Mohammad Khatami (1997-2005), a reformist, due to his years of distinguished service in both the IRGC and the conventional military.

Shamkhani’s nearly 10-year term as SNSC secretary, from 2013 to 2023, was second only to Hassan Rouhani, who served in the position from 1989 to 2005. Shamkhani has been a survivor in a regime that has increasingly purged reformists, centrists and even some conservatives.  

Shamkhani has political enemies. For years, critics have charged him and members of his family, including his sons and son-in-law, of corruption and amassed wealth through shipping and construction companies.

In November 2022, Shamkhani reportedly faced criticism from hardliners for failing to quash the nationwide protests that erupted in September 2022.

In January 2023, Iran executed Alireza Akbari, who served as Shamkhani’s deputy from 2000 to 2004. Akbari was convicted of spying for Britain and corruption on earth. The execution triggered media speculation about Shamkhani's fate. IRGC-linked media reported that he might step down, but a news agency linked to the SNSC denied the reports.

Shamkhani’s last major accomplishment was helping to broker Iran’s rapprochement with regional rival Saudi Arabia. In March 2023, he led a delegation to Beijing for talks with the Sunni kingdom. The two countries agreed to restore diplomatic ties seven years after severing relations.

Shamkhani appeared to foreshadow the end of his term with a cryptic tweet on May 21. He quoted a 16th-century poem that Iranian media took as a sign of his imminent removal.

On May 22, President Raisi appointed Ali Akbar Ahmadian, an IRGC commander, to replace Shamkhani. Supreme Leader Khamenei then selected Ahmadian as his representative on the SNSC, which indicated his approval.

“I would like to thank and appreciate Ali Shamkhani's responsible, persistent presence and his efforts as the leader’s representative during these years,” Khamenei wrote in a decree.

Khamenei named Shamkhani his political advisor. “In light of the closeness between the two and the degree of Khamenei's trust in Shamkhani, he will likely continue to play a significant role in the decision-making process in Tehran,” according to Citrinowicz, who headed the Iran branch of Israel Defense Intelligence’s Research and Analysis Division. “Shamkhani has a great deal of knowledge and experience, with an emphasis on the nuclear issue.”

Khamenei also appointed Shamkhani as member of the Expediency Council, a body that resolves constitutional disputes between the Parliament and the Guardian Council. The body, which includes some three dozen members, has often included officials who have fallen out of favor. So the role could be largely ceremonial.