THE KREMLIN FILES / COLUMN — (Note: This is the first in a two-part series on Russian gray zone, or hybrid warfare. In a future article, the author will address the continued evolution of Russian hybrid warfare and its practice in the years immediately leading up to and through Russia’s full-scale invasion of Ukraine.)
Russian hybrid warfare, often referred to in the West as “gray zone” conflict, has transitioned from theoretical concept to prominent headlines, particularly following the invasion of Ukraine and the Kremlin’s campaigns of sabotage, disinformation, and targeted intelligence actions across Europe and the U.S. What defines Russian-style gray warfare, or hybrid war? What are its doctrinal roots, and how well do these foundations align with assumptions in Western security discussions? To explore these questions, this article analyzes the writings of Russian military thinkers and the views of Russian military and intelligence agencies—covering their terminology, doctrines, and their evolving grasp of non-kinetic conflict.
Gray zone operations in the West are generally seen as actions that influence the course of a conflict or harm an adversary without crossing into direct kinetic attacks. For Russia, at the core of the gray zone is the concept of “non-contact war” (bezkontaktnaya voina), which is part of a larger doctrinal framework under which gray warfare, also called “new generation warfare” by the Russians, falls. This is not a new concept in Russian military thinking, but it has developed over decades. By examining its evolution over the past thirty years through Russian sources and military thinkers, we can better understand how Moscow uses these concepts today—and how they influence the conflicts we may face now and in the future, enabling the U.S. and our allies to respond more effectively.
There are two main components of Russian gray warfare. Russians rarely use the term hybrid war, which exists in Russian only as a borrowed term from English. The first concept is non-contact warfare—the concept of preparing and softening the battlefield, then minimizing ground engagements for their troops whenever possible. The second concept is Russian intelligence active measures, also known as measures of support. This is also an old idea in Russian intelligence circles, but one that has been expanded and intensified in recent decades, incorporating new elements such as cyber operations and cognitive warfare.
We will briefly discuss each of these concepts below, along with Russia’s gray-zone developments up to its deployments into Ukraine in 2014. In the second part of this series, we will analyze Russia’s doctrine as it was applied in the years immediately leading up to and through the full-scale invasion of Ukraine, while also considering another key factor for Russia—their ability to evolve and adapt.
Non-Contact Warfare: Origins and Russian Military Necessities
Non-contact warfare developed from what the Russian General Staff and other military thinkers called sixth-generation warfare. The concept grew from the “reconnaissance strike complex” theory and the so-called “revolution in military affairs” at the end of the Cold War. As the Soviet Union disintegrated and the U.S. demonstrated overwhelming air power with NATO and other allies during the Persian Gulf war, former Soviet and Russian generals were not fools. They understood they could not keep pace with the new advancements in air warfare and the technological edge of NATO weapons systems.
Russian General Staff thinkers recognized that the Russian Air Force could not match TTPs (techniques, tactics, and procedures), the number of pilot training hours, or the advanced systems that the U.S. and NATO could field, especially given their significantly reduced military budget following the Soviet Union's collapse. This operational shortfall was further emphasized by the targeted bombing campaigns and overwhelming force deployed by U.S./NATO forces in the Balkan campaigns of the mid-1990s.
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In short, Russian military planners recognized they could not keep pace. NATO airpower and the reach of the alliance into all sorts of regions and conflict zones posed a significant challenge for the Russian military and its intelligence services. One of the lessons they understood was that massed tank formations alone would not win wars in the 21st century. Throughout the 1990s and into the early 2000s, several important writings were produced by prominent Russian general staff figures, such as Generals Slipchenko and Gareev, as well as the future Chief of Staff of the Russian military and currently the commander of the Russian forces in the Ukraine war, Valeriy Gerasimov.
Slipchenko is credited in Russia with coining the phrase “sixth generation warfare” more than twenty years ago. According to Slipchenko, this new form of warfare signified a shift from nuclear-based conflict (which he called “fifth generation”) toward information-enabled, precision-strike, so-called non-contact wars (he authored a book with that same title). These wars would be fought at a distance, relying on airpower, command, control, intelligence, surveillance, reconnaissance (C4ISR), and long-range precision strikes, rather than large ground forces. He and Gareev published a book in Russia in 2004 titled On Future Wars, which became influential in many Russian military circles. In this work, Slipchenko and Gareev emphasized the importance of studying non-contact warfare and firmly stated that Russia must adapt to it, or else “Russia would not survive.”
During that same period, Russia’s Air Force struggled significantly in the 1990s and 2000s to adopt precision-guided munitions (PGMs). Russia never fully integrated them or appropriately trained them on their use, which was evident in its prolonged conflicts with Chechen separatists. Most ground-attack operations during that period, from the mid to late 1990s, relied on “dumb bombs” and massed artillery on the battlefield. This resulted in the Russian air force’s poor performance in the 2008 Georgian conflict, when an outmanned Georgian military embarrassingly shot down several Russian fighter-bombers.
In the summer of 2008, responding to Georgia launching an incursion to retake South Ossetia, Russia responded with overwhelming force, sending an entire army to occupy swaths of Abkhazia, Ossetia, and also northern Georgia from Poti to Gori and the edges of Tbilisi. But while their force ratios led to quick success on the ground, the Russian air force did not perform as well in the air. In addition to air losses to ground-based air defense and friendly fire, Russian precision strikes did not go off as planned. Russia’s performance could be summed up as ineffective from the air. They were not able to project over-the-horizon warfare in the ways that Russian military planners had envisioned for non-contact war.
The first widespread and successful use of Russian PGMs would come still later, mostly during Russia’s involvement in Syria, where Russian squadrons were rotated for training and gained exposure to actual combat. Before that, many pilots had not experienced any combat outside of Chechnya.
Russia’s Air Force underwent a series of reforms due to these failures. It was reorganized and renamed the Russian Aerospace Forces (the VKS) in 2015 as a result of many of these reforms, or what were claimed to be reforms. When the full-scale invasion happened in 2022, Russia’s VKS, like much of its military, was still trying to evolve from its targeted reforms and these earlier developmental challenges. They attempted a limited shock-and-awe offensive but failed miserably in areas such as battle damage assessment and other key aspects of a true air campaign (the second article in this series will touch on these issues in more detail).
However, military reforms and adaptations in the Russian Air Force were not meant to stand alone. Russian kinetic actions were intended to be supported by other elements in non-contact warfare, aimed at softening the battlefield and undermining an adversary’s ability to fight. Prominent among these were active measures focused on information operations.
Active Measures, Measures of Support, and Non-state Actors
Returning to Russian arms doctrine, Slipchenko and other figures on the General Staff argued that, in the post–Cold War world, especially after observing the 1991 Gulf War and the dominance of US airpower, massing military forces was no longer effective. The world saw how Saddam’s large army, with thousands of tanks and armored vehicles, was destroyed from the air. Slipchenko claimed that future wars will focus on disrupting enemy systems, including military, economic, social, and other so-called “information means.”
This was not a new concept for Russia and its intelligence agencies—the FSB, GRU, and SVR (collectively the Russian intelligence services or RIS). The RIS would play a key role by using a well-known Russian technique—active measures, or as the RIS calls them today, measures of support. These tactics aim to weaken the enemy's ability to fight through malign influence, political interference, and disinformation. The Russians use state agencies and means, like their intelligence services, but also so-called non-state actors, like organized crime, private mercenaries, hacker groups, and many others, to carry out these and other hybrid actions as proxies.
The doctrinal approach of gray war, or new generation warfare, was gaining attention in Russia just as Putin's reign started. His rule coincided with the growing influence of the RIS within the government. It was natural for the RIS to take on roles the military was not equipped to perform, and Putin was quick to authorize them. One of the first tests for their active measures and gray war was Russia’s brief war with Georgia in 2008. As noted above, and while their military’s performance was mixed, their intelligence services were very active in the information arena. Russia flooded international media with its version of events. Their still-growing “RTV” news network promoted stories of atrocities they claimed were committed by the Georgian military. Europe and the U.S. were caught off guard and unprepared by the conflict; there was little to no meaningful response to Russia’s military actions, and no high costs or reprisals. It was a lesson Russia would remember.
After Georgia in 2008, while reforms were introduced in the air force in particular, the doctrinal debates continued. Building on Slipchenko’s ideas, writers from the General Staff, such as General Chekinov and General Bogdanov, further developed the doctrine they called “new-generation warfare.” Their work emphasized scripted roles in conflict for the information-psychological struggle, subversion, and cyber operations, while traditional large-scale combat operations became, by comparison, less prominent.
In 2013, the current Russian Chief of Staff, Valeriy Gerasimov, gave a speech in which he also advocated for a constant “second front” of information operations against Russia’s enemies to weaken their ability to wage war. This speech and a later article became known in some circles in the West as the “Gerasimov doctrine,” although it was never officially called that in Russia.
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Gerasimov’s speech and article focused on shifting Russia's attention to countering the so-called “color revolutions” that occurred in the first decade of this century in Ukraine, Georgia, and Kyrgyzstan. They were, and still are, viewed as a direct threat to Russia’s national security and to Putin’s dictatorship. Russia cannot tolerate functioning democracies and freedom on its borders.
By combining Gerasimov’s contributions with those of Slipchenko, Gareev, and others, the Russian military developed a concept of non-contact warfare that planned for long-range strikes executed after weakening the enemy through non-kinetic means. They de-emphasized large ground formations because, according to the theory, they should not be necessary. Russian measures of support are designed to weaken an adversary through disinformation, misinformation, malign influence on politics, and other methods. This would become the battle plan the Russians would attempt to implement in Ukraine in 2014 (and again, with adjustments, in 2022).
As cyber has taken a greater role in society and the mass media, the Russian grey zone approach has also increasingly included RIS cyber operations and online media manipulation to support “reflexive control,” an old Russian intelligence concept from the 1960s. The term reflects the notion of influencing an adversary to act in a desired way without the enemy’s awareness. Gerasimov and the military, along with leaders of the RIS, knew from Russia’s poor performance in Georgia that they were not ready for war with NATO or any strong peer-level adversary. They needed help to weaken any adversary with a capable armed force before actual war.
Syria and Ukraine would be the new testing grounds for this concept in practice, with a heavy reliance on the intelligence services to help prepare the battlefield before and through the military’s engagement. Their perceived successes in both theaters would, over time, convince the Russian intelligence services, its military, and most importantly, President Putin that Russia was ready for a much larger task— an attack on and seizure of the entire territory of Ukraine.
All statements of fact, opinion, or analysis expressed are those of the author and do not reflect the official positions or views of the US Government. Nothing in the contents should be construed as asserting or implying US Government authentication of information or endorsement of the author’s views.
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