NATIONAL COUNTER-TERRORISM POLICY & STRATEGY
INDEX
I. Introduction
II. Threat Profile
III. Counter Terrorism Strategy
- Prevention of terror attacks
- Responses
- Aggregating capacities
- Human rights and ‘Rule of Law’ based processes
- Attenuating the conditions conducive for terrorism
- Aligning and shaping the international efforts
- Recovery and resilience through a whole-of-society approach
IV. The Way Forward
INTRODUCTION
India has been at the forefront of the ongoing fight against terrorism for several decades now. While the nature of threats continues to change and present new challenges, India has remained consistently opposed to terrorism in all its forms and manifestations.
There has been a history of sporadic instability in the immediate neighborhood of India, which has often given rise to ungoverned spaces. Besides, few countries in the region have sometimes used terrorism as an instrument of State Policy. Notwithstanding this, India does not link terrorism to any specific religion, ethnicity, nationality or civilization. India has always denounced terrorism and its use by any actor for achieving any stated or unstated ends, unambiguously and unequivocally.
India has always stood by the victims of terrorism and has been steadfast in its belief that there can be no justification whatsoever for violence in the world. It is this principled approach which informs the Indian policy of ‘zero tolerance’ against terrorism.
The counter-terrorism strategy of India, ‘PRAHAAR’, flows from these ideals and is predicated on the following:
Prevention of terror attacks to protect Indian citizens and interests;
Responses, which are swift and proportionate to the threat posed;
Aggregating internal capacities for achieving synergy in a whole-of-government approach;
Human rights and ‘Rule of Law’ based processes for mitigation of threats;
Attenuating the conditions enabling terrorism, including radicalization;
Aligning and shaping the international efforts to counter terrorism;
Recovery and resilience through a whole-of-society approach.
THREAT PROFILE
India has since long been affected by sponsored terrorism from across the border, with jihadi terror outfits as well as their frontal organizations continuing to plan, coordinate, facilitate and execute terror attacks in India. India has been on the target of global terrorist groups such as Al-Qaeda and the Islamic State of Iraq and Syria (ISIS), which have been trying to incite violence in the country through sleeper cells.
Violent extremists operating from the soils of foreign countries have hatched conspiracies to promote terrorism. Their handlers from across the border frequently use latest technologies, including use of drones, for facilitating terror-related activities and attacks in Punjab and Jammu and Kashmir. Increasingly, terrorist groups are engaging organized criminal networks for logistics and recruitment to execute and facilitate terror strikes in India.
For propaganda, communication, funding and guiding terror attacks, these terror groups use social media platforms as well as instant messaging applications. Technological advancements like encryption, dark web, crypto wallets etc. have allowed these groups to operate anonymously.
Disrupting/intercepting terrorist efforts to access and use CBRNED (Chemical, Biological, Radiological, Nuclear, Explosive, Digital) material remains a challenge for Counter Terrorism (CT) agencies. The threat of state and non-state actors misusing drones and robotics for lethal purposes remains another area of concern, even as criminal hackers and nation states continue to target India through cyber-attacks.
COUNTER TERRORISM STRATEGY
1. Prevention of Terror Attacks
India follows a proactive approach to prevent and counter terrorist threats. This approach is primarily intelligence-guided, in which primacy is accorded to intelligence gathering and its dissemination to executive agencies for neutralization of threat.
Operationalization of Multi Agency Centre (MAC) along with the Joint Task Force on Intelligence (JTFI) in the Intelligence Bureau (IB) remains the nodal platform for efficient and real-time sharing of CT-related inputs across the country and subsequent prevention against disruptions. Close partnerships for CT operations have been created with Central Agencies and State Police Forces under the mechanism of MAC/JTFI in IB.
Terrorists and violent extremists misuse the internet for communication, recruitment, glorification of jihad and other terror-related activities. Indian Law Enforcement Agencies make sustained efforts to counter misuse of the internet through proactive disruption of such cyber activities, online networks of terrorist groups and their propaganda/recruitment. Law enforcement agencies also regularly disrupt the over ground workers (OGW) modules, through which terrorists are extended logistic, material and financial support.
In recent times, nexus between illegal arms syndicates and terrorist groups has emerged, and for combating it, coordinated interventions are being made by intelligence agencies along with respective Law Enforcement Agencies in various Indian States. Special emphasis is given for disrupting terror funding networks through legal framework under Indian laws.
India faces terrorist threats on all three fronts viz. water, land and air. Indian border guarding forces (Defence, Central Armed Police Forces) as well as immigration authorities are equipped with state-of-the-art tools and technologies to secure Indian borders. Capacities have been developed to protect the critical sectors of Indian economy including power, railways, aviation, ports, defence, space and atomic energy from state/non-state actors.
2. Response
The local Police is the first responder to any attack, assisted by specialized State and Central anti-terror Forces. The States vulnerable from the terror threat point of view have created special CT Forces to respond to attacks. The National Security Guard (NSG) is the nodal national Counter-Terror Force under MHA, for assistance to State Forces in responding to major terror attacks, besides capacity building of such State Forces.
Responding to a terror attack is a multi-stakeholder exercise involving various Agencies at Central, State and District levels. There exists a Standard Operating Procedure (SOP) issued by the Ministry of Home Affairs (MHA), for coordination at the apex level that includes intelligence dissemination, analysis and follow-up action through the platform of MAC. Central Armed Police Forces (CAPFs) are regularly deployed in States and perform a wide range of duties including maintenance of law and order and counter-terrorism operations.
The National Investigation Agency (NIA) and State Police Agencies conduct CT investigations in India and high prosecution rates of these investigations ensure a deterrent to future terror incidents.
3. Aggregating Capacities
Modernization of Security and Law Enforcement Agencies plays an important role in CT responses. There is regular acquisition of latest tools, technology and weaponry, besides training for new skills and tactics for CT Agencies.
The Bureau of Police Research & Development (BPR&D), in association with training institutions of States and CAPFs, regularly conducts training courses for personnel of State Police and CAPFs. NSG’s training in urban combat caters to the need of specialized CT Forces in different States.
In a multi-agency environment, standardization of processes and procedures ensures similar and synergistic responses. There is a move for having uniform anti-terrorism structure in the States. The overall capacities of various Law Enforcement and CT Agencies have been enhanced by identifying resource gaps and suggesting necessary countermeasures.
4. Human Rights and Rule of Law Based Processes
Indian laws, including anti-terrorism laws, give due importance to human rights. India adheres to the ‘Rule of Law’, where laws are just, applied evenly and protect fundamental rights. The Protection of Human Rights Act, 1993 specifically deals with cases of violation of human rights in India. India is also a signatory to the Universal Declaration of Human Rights 1948 and has ratified the International Covenant on Civil and Political Rights.
The Unlawful Activities (Prevention) Act, 1967 is the principal legal regime to deal with terrorism in India, supplemented by the Bharatiya Nyaya Sanhita, 2023; Bharatiya Nagarik Suraksha Sanhita, 2023; Bharatiya Sakshya Adhiniyam, 2023; and other Acts such as the Explosives Substances Act, 1908; Arms Act, 1959; and Prevention of Money Laundering Act, 2002.
Multiple levels of legal redressal are available through the justice system from District Courts to the higher judiciary including the Supreme Court of India. The due process of law ensures proper representation and opportunities for appeal.
5. Attenuating the Conditions Conducive to Terrorism
Terrorist groups continuously attempt to recruit Indian youth. Intelligence and law enforcement agencies disrupt these efforts, and identified individuals undergo graded police response aimed at addressing radicalization and violent extremism. Legal action is initiated based on the level of radicalization.
Community and religious leaders, moderate preachers and NGOs are engaged to spread awareness about the adverse impacts of radicalization and extremist violence. Youth are constructively engaged to maintain peace and communal harmony. Measures are also taken to prevent radicalization in prisons.
Issues of poverty and unemployment among vulnerable communities are addressed through government schemes promoting access to quality education, affordable housing and stable jobs. Scholarships and loan schemes empower youth and women educationally and financially.
6. Aligning and Shaping International Efforts
Given the trans-national character of terrorism, international cooperation is crucial. India has entered into various agreements including Mutual Legal Assistance Treaties (MLAT), Extradition Treaties/Arrangements, Joint Working Groups (JWG) and Memoranda of Understanding (MoU) for information and evidence sharing.
Law Enforcement Agencies have succeeded in extraditing and deporting wanted fugitives. International partners support India in designating terrorists at the United Nations.
India actively engages in bilateral and multilateral counter-terrorism forums to exchange global best practices and strengthen national responses.
7. Recovery and Resilience through a Whole-of-Society Approach
India follows a whole-of-society approach in countering terrorism. Public-private partnership is a key component in ensuring faster recovery and resilience in case of a terror attack.
The government engages doctors, psychologists, lawyers and members of civil society including NGOs, religious and community leaders to support and reintegrate affected communities. Civil administration leads reconstruction and restoration efforts, while police strengthen preventive security measures to reassure communities and promote resilience.
THE WAY FORWARD
Coordinated multi-agency actions have significantly contributed to India’s counter-terrorism success. However, there remains scope for further cooperation in intelligence collection and investigation.
The domestic counter-terrorism legal regime needs periodic amendment to address emerging challenges. Continued capacity building of Counter Terrorism units/ATSs of States/UTs is essential, with emphasis on uniform structure, resources, training and investigative methodologies.
Legal experts should be associated at every stage of investigation to strengthen prosecution. National actions, combined with international and regional cooperation, remain key to addressing trans-national terrorism challenges.
India remains committed to international collaboration and to building consensus on a comprehensive framework against terrorism. Through its policy and strategy ‘Prahaar’, India aims to criminalize all terrorist acts and deny terrorists access to funds, weapons and safe havens, while countering the misuse of Information and Communications Technology (ICT) for terrorist purposes.
“National Counter-Terrorism Policy & Strategy” , outlines India’s comprehensive counter-terrorism framework known as ‘PRAHAAR’. This policy is issued by the Ministry of Home Affairs.
