Grey Zone Warfare in Cyberspace: Legal Challenges in Attribution and Response

Rahul Kumar
Rahul Kumar
Intern - Policy & Advocacy, CyberPeace
PUBLISHED ON
Aug 27, 2025
10

Introduction


In today’s digital era, warfare is being redefined. Defence Minister Rajnath Singh recently stated that “we are in the age of Grey Zone and hybrid warfare where cyber-attacks, disinformation campaigns and economic warfare have become tools to achieve politico-military aims without a single shot being fired.” The crippling cyberattacks on Estonia in 2007, Russia’s interference in the 2016 US elections, and the ransomware strike on the Colonial Pipeline in the United States in 2021 all demonstrate how states are now using cyberspace to achieve strategic goals while carefully circumventing the threshold of open war.

Legal Complexities: Attribution, Response, and Accountability

Grey zone warfare challenges the traditional notions of security and international conventions on peace due to inherent challenges such as :

  • Attribution
    The first challenge in cyber warfare is determining who is responsible. Threat actors hide behind rented botnets, fake IP addresses, and servers scattered across the globe. Investigators can follow digital trails, but those trails often point to machines, not people. That makes attribution more of an educated guess than a certainty. A wrong guess could lead to misattribution of blame, which could beget a diplomatic crisis, or worse, a military one.
  • Proportional Response
    Even if attribution is clear, designing a response can be a challenge. International law does give room for countermeasures if they are both ‘necessary’ and ‘proportionate’. But defining these qualifiers can be a long-drawn, contested process. Effectively, governments employ softer measures such as protests or sanctions, tighten their cyber defences or, in extreme cases, strike back digitally.
  • Accountability
    States can be held responsible for waging cyber attacks under the UN’s Draft Articles on State Responsibility. But these are non-binding and enforcement depends on collective pressure, which can be slow and inconsistent. In cyberspace, accountability often ends up being more symbolic than real, leaving plenty of room for repeat offences.

International and Indian Legal Frameworks

Cyber law is a step behind cyber warfare since existing international frameworks are often inadequate. For example, the Tallinn Manual 2.0, the closest thing we have to a rulebook for cyber conflict, is just a set of guidelines. It says that if a cyber operation can be tied to a state, even through hired hackers or proxies, then that state can be held responsible. But attribution is a major challenge. Similarly, the United Nations has tried to build order through its Group of Governmental Experts (GGE) that promotes norms like “don’t attack. However, these norms are not binding, effectively leaving practice to diplomacy and trust.

India is susceptible to routine attacks from hostile actors, but does not yet have a dedicated cyber warfare law.  While Section 66F of the IT ACT, 2000, talks about cyber terrorism, and Section 75 lets Indian courts examine crimes committed abroad if they impact India,  grey-zone tactics like fake news campaigns, election meddling, and influence operations fall into a legal vacuum.

Way Forward

  • Strengthen International Cooperation
    Frameworks like the Tallinn Manual 2.0 can form the basis for future treaties. Bilateral and multilateral agreements between countries are essential to ensure accountability and cooperation in tackling grey zone activities.
  • Develop Grey Zone Legislation
    India currently relies on the IT Act, 2000, but this law needs expansion to specifically cover grey zone tactics such as election interference, propaganda, and large-scale disinformation campaigns.
  • Establish Active Monitoring Systems
    India must create robust early detection systems to identify grey zone operations in cyberspace. Agencies can coordinate with social media platforms like Instagram, Facebook, X (Twitter), and YouTube, which are often exploited for propaganda and disinformation, to improve monitoring frameworks.
  • Dedicated Theatre Commands for Cyber Operations
    Along with the existing Defence Cyber Agency, India should consider specialised theatre commands for grey zone and cyber warfare. This would optimise resources, enhance coordination, and ensure unified command in dealing with hybrid threats.

Conclusion

Grey zone warfare in cyberspace is no longer an optional tactic used by threat actors but a routine activity. India lacks the early detection systems, robust infrastructure, and strong cyber laws to counter grey-zone warfare. To counter this, India needs sharper attribution tools for early detection and must actively push for stronger international rules in this global landscape. More importantly, instead of merely blaming without clear plans, India should focus on preparing for solid retaliation strategies. By doing so, India can also learn to use cyberspace strategically to achieve politico-military aims without firing a single shot.

References

PUBLISHED ON
Aug 27, 2025
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