Context: The 9/11 terrorist attacks in the United States in 2001, carried out by al-Qaeda, fundamentally transformed global counter-terrorism strategies.
- Over the past 25 years, terrorism has evolved in its organisational structure, instruments, targets and methods, requiring states to continuously adapt their counter-terrorism strategies.
- Large, centrally controlled organisations led by figures such as Osama bin Laden and Abu Bakr al-Baghdadi have increasingly given way to smaller, autonomous and decentralised terror entities.
- Lone-wolf terrorism, where individuals undertake attacks with limited or no direct operational support from a formal organisation, has become increasingly prominent.
- Terrorists and counter-terrorism agencies are increasingly using drones, cyber capabilities and Artificial Intelligence (AI), making technology an important component of modern security operations.
Evolution of India’s Counter-Terrorism Strategy
- The emergence of cross-border terrorism in Kashmir during the early 1990s exposed major weaknesses in India's counter-terrorism and intelligence architecture.
- The assassination of former Prime Minister Rajiv Gandhi by the Liberation Tigers of Tamil Eelam (LTTE) at Sriperumbudur, Tamil Nadu, in 1991 was one of India's earliest major terrorist attacks in this period.
- The 1993 Mumbai serial blasts, involving 13 coordinated explosions that killed over 250 people, and the 1998 Coimbatore serial blasts highlighted the inadequacies of India's internal security mechanisms.
- The 1999 hijacking of Indian Airlines flight IC-814 exposed the direct involvement of Pakistan-based terrorist networks and forced India to release terrorists including Masood Azhar and Ahmed Omar Sheikh in exchange for over 160 hostages.
- The 2001 Parliament attack by Jaish-e-Mohammed (JeM) led to Operation Parakram, involving large-scale military mobilisation against Pakistan.
- However, India's nuclear status and Pakistan's nuclear capability created the risk of escalation, resulting in international diplomatic intervention and eventual military disengagement without direct military punishment of Pakistan.
- The 26/11 Mumbai attacks of 2008, often described as India's equivalent of 9/11, similarly did not result in direct military action against Pakistan.
- Other major attacks during this period included the 2002 Akshardham Temple attack, 2006 Varanasi blasts and 2010 German Bakery blast.
- Delhi witnessed repeated attacks, including the 2000 Red Fort attack, 2005 market blasts, 2008 serial blasts and 2011 Delhi High Court bombing, demonstrating the persistent nature of the threat.
- Despite evidence of Pakistan-based support for several attacks, India's response during this period largely remained reactive and restrained.
Shift Towards Cross-Border Counter-Terrorism: A major strategic shift occurred after the change of government at the Centre in 2014, with greater emphasis on imposing costs on perpetrators and their supporters.
- Surgical Strikes, 2016
- Following the 18 September 2016 Uri terrorist attack by JeM terrorists on an Army camp, India conducted cross-border surgical strikes on 28–29 September 2016.
- The operation demonstrated India's willingness to cross the Line of Control (LoC) to target terrorist infrastructure and marked a significant departure from earlier restraint.
- Balakot Air Strikes, 2019
- Following the 14 February 2019 Pulwama attack on a Central Reserve Police Force (CRPF) convoy, the Indian Air Force (IAF) conducted air strikes against a JeM terror camp at Balakot.
- This marked the first instance of the IAF crossing into Pakistani airspace to strike a terrorist target.
- Operation Sindoor, 2025
- The 22 April 2025 Pahalgam terrorist attack triggered a further escalation in India's counter-terrorism response.
- Following the attack, India launched Operation Sindoor on 6–7 May 2025, targeting the leadership and infrastructure of Pakistan-based Lashkar-e-Taiba (LeT) and JeM.
- The operation represented India's continued shift towards directly targeting the terror ecosystem and its supporting infrastructure.
India’s Current Counter-Terrorism Approach: India has transitioned from a predominantly passive and reactive approach to a more proactive strategy against cross-border terrorism.
Three broad strategic positions have been emphasised:
- End of strategic restraint: India has signalled that future terrorist attacks will attract a direct and significant response.
- Cross-border terrorism as an act of war: Terror attacks originating from across the border are increasingly being treated as a national-security threat warranting a stronger response.
- Reduced effectiveness of nuclear deterrence as a shield: India has indicated that Pakistan's possession of nuclear weapons will not automatically prevent responses to terrorism.
PRAHAAR: National Counter-Terrorism Framework
- India unveiled PRAHAAR, its first comprehensive National Counter-Terrorism Policy and Strategy, on 23 February 2026.
- It provides a national framework for preventing and responding to terrorism and radicalisation.
- The strategy adopts “whole-of-government” and “whole-of-society” approaches, emphasising coordination among government institutions as well as wider societal participation.
- It reflects the understanding that counter-terrorism requires not only military and policing measures but also prevention, intelligence, counter-radicalisation and societal resilience.
Four-Fold Strategy Ahead: Despite the sharp decline in terror-related incidents in Kashmir, infiltration across the Line of Control (LoC) remains a potential threat.
- Eliminate residual networks: Security agencies should continue dismantling remaining terrorist networks, particularly in Kashmir.
- Pre-emptive action: India should undertake preventive military action against emerging terrorist threats and launch pads across the LoC, supported by its intelligence capabilities.
- De-radicalisation: A comprehensive national programme should prevent vulnerable youth from being recruited into terrorist organisations while making support for terrorism socially and economically unattractive.
- Counter-terror financing: India should strengthen international cooperation to identify, disrupt and eliminate financial channels supporting terrorist organisations.
International Dimension of India’s Counter-Terrorism Diplomacy
- At the Shanghai Cooperation Organisation (SCO) Summit in Bishkek, Prime Minister Narendra Modi highlighted the problem of countries using terrorism as an instrument of state policy and providing safe havens to terrorists.
- India has consistently advocated that terrorism cannot be treated as a strategic asset by any state.
- At the 18th BRICS Summit in New Delhi, the inclusion of a dedicated paragraph on the Pahalgam terrorist attack in the Delhi Declaration reflected growing international support for India's concerns regarding terrorism.
