Terror’s changing face, India’s counter-terror strategy

UPSC Syllabus: Gs Paper 3- Security

Introduction

The 9/11 attacks marked a major shift in global counter-terrorism and changed how states responded to terrorist threats. Terrorism has since become more decentralised, technology-driven and difficult to detect. India has faced this changing threat along with persistent cross-border terrorism and internal security gaps. Since 2014, India has moved from reactive restraint towards zero tolerance, proactive deterrence, stronger institutions, intelligence-led prevention and international cooperation.

Evolution of the Terrorism Threat

1. Decentralised networks: Terrorism has shifted from large organisations under central leaders to smaller, autonomous entities, making detection and prevention more difficult.
2. Lone-wolf attacks: Individuals can now carry out attacks with limited organisational support, creating new challenges for conventional intelligence methods.
3. Technology as a terror tool: Drones, cyber capabilities and artificial intelligence are increasingly being used by terrorist groups for new forms of attacks.
4. Digital recruitment: Social media, encrypted platforms and the dark web are being used for propaganda, recruitment, financing and coordination.
5. Rise of self-radicalisation: ISIS created new risks through online extremist propaganda and recruitment of individuals capable of conducting low-intensity attacks.
6. Changing financing methods: Terrorist networks increasingly use hawala, cryptocurrencies and concealed financial channels, requiring stronger financial intelligence.

India’s Early Struggle with Terrorism

1. Kashmir challenge: Cross-border terrorism expanded in Kashmir during the early 1990s, while India lacked a clearly defined comprehensive counter-terror strategy.
2. Terror beyond Kashmir: The 1991 Rajiv Gandhi assassination showed that India also faced terrorism from organisations operating beyond its immediate conflict zones.
3. Internal security gaps: The 1993 Mumbai blasts, which killed over 250 people in 13 coordinated explosions, exposed weaknesses in terror detection.
4. Further urban attacks: The 1998 Coimbatore blasts showed that terrorist groups could conduct coordinated attacks in different parts of the country.
5. Pakistan-based networks: The 1999 IC-814 hijacking exposed the direct role of Pakistan-based terrorists and forced India to release terrorists including Masood Azhar.
6. Parliament attack: The 2001 Parliament attack triggered Operation Parakram, but nuclear escalation prevented direct military punishment of Pakistan.
7. Continued attacks: Attacks in Akshardham, Varanasi, Pune and Delhi, followed by 26/11, demonstrated the continuing threat despite security responses.
8. Reactive approach: India largely relied on warnings, diplomatic pressure and restraint, even when evidence linked attacks to Pakistan-based networks.

Turning Point: From Restraint to Decisive Action

1. Policy change after 2014: The government formed in May 2014 adopted a zero-tolerance approach, seeking to dismantle the wider terror ecosystem rather than merely respond to attacks.
2. Surgical strikes: After the 2016 Uri attack, India conducted cross-border strikes on September 28–29, establishing a new willingness to impose costs.
3. Pre-emptive deterrence: The Uri response showed that India was prepared to target terrorists before they could infiltrate and attack Indian territory.
4. Balakot operation: Following the 2019 Pulwama attack, the IAF struck a JeM camp at Balakot, crossing Pakistani airspace for the first time in such an operation.
5. Operation Sindoor: After the 2025 Pahalgam attack, India struck LeT and JeM leadership and headquarters and Pakistani military assets.
6. Act-of-war position: India declared that future cross-border terrorism from Pakistan would be treated as an “act of war”.
7. Nuclear restraint rejected: India also stated that Pakistan’s nuclear capability would no longer prevent it from responding to terrorism.
8. Strategic doctrine: The approach shifted from managing terrorism to imposing direct costs on its sponsors, networks and infrastructure.

India’s Comprehensive Counter-Terror Framework

1. UAPA empowerment: The 2019 Unlawful Activities (Prevention) Act (UAPA ) amendment allowed individuals to be designated as terrorists and strengthened investigative powers against terrorist organisations.
2. Expanded NIA mandate: The 2019 National Investigation Agency (NIA) amendment expanded investigation powers over terrorism, cyber terrorism and offences outside India affecting Indian interests.
3. BNS reform: The Bharatiya Nyaya Sanhita, 2023, effective from July 2024, formally defines terrorist acts and provides stringent punishment.
4. NIA capacity: NIA’s budget rose from ₹91.32 crore in 2014–15 to ₹394.66 crore in 2024–25, alongside expanded branches, special courts and training.
5. Integrated intelligence: The MAC-SMAC (Multi-Agency Centre- Subsidiary Multi-Agency Centre) system enables real-time intelligence sharing among central and state security agencies.
6. Data integration: NATGRID and CCTNS (Crime and Criminal Tracking Network and Systems) connect multiple databases and agencies, helping identify suspects, terror networks and financing trails.
7. Technology-driven response: CyMAC (Cyber Multi-Agency Centre), CCTNS 2.0 and AI-enabled analytical systems have strengthened cyber monitoring and threat detection.
8. Terror-financing action: PMLA (Prevention of Money Laundering Act) mechanisms and specialised efforts have strengthened the tracing, freezing and confiscation of terror-linked assets.
9. PRAHAAR framework: PRAHAAR, launched in February 2026, consolidates prevention, rapid response, whole-of-government coordination and whole-of-society participation.

International Counter-Terrorism and Strategic Cooperation

1. Global financial cooperation: India has strengthened coordination with Financial Action Task Force (FATF) and created the Combating Financing of Terrorism Cell to disrupt terrorist funding.
2. No Money for Terror(NMFT) : India hosted the third NMFT Ministerial Conference in November 2022, focusing on financial intelligence, legislation and international cooperation.
3. CCIT advocacy: India continues to seek adoption of the Comprehensive Convention on International Terrorism ( CCIT), first proposed at the UN in 1996.
4. UN designation: India secured the UN designation of Masood Azhar in May 2019, enabling international travel restrictions, asset freezes and arms embargoes.
5. Tahawwur Rana extradition: Rana’s extradition in April 2025 strengthened India’s ability to investigate the wider 26/11 conspiracy.
6. Counter-terror partnerships: India has Joint Working Groups on Counter-Terrorism with 27 countries and five multilateral forums, including SCO, BRICS, BIMSTEC, EU and QUAD.
7. INTERPOL coordination: BHARATPOL, launched in January 2025, connects Indian law-enforcement authorities with the CBI’s INTERPOL coordination system.
8. Diplomatic pressure: India has used international forums to raise the cost for states and organisations that provide safe havens, support or financing to terrorists.

Outcomes of the Counter-Terrorism Transformation

1. Fewer terror incidents: Terrorist incidents declined from 7,217 during 2004–2014 to 2,242 during 2014–2024, showing a major improvement in the security environment.
2. Sharp Kashmir decline: Terrorist-initiated incidents fell from 228 in 2018 to 12 in 2025, reflecting stronger preventive and operational capabilities.
3. Lower civilian deaths: Civilian casualties declined from 55 in 2018 to 28 in 2025, while security-force fatalities fell from 91 to 16.
4. Reduced stone-pelting: Organised stone-pelting fell by over 87% from its 2010–2014 average and remained near-zero since 2022.
5. Return of normalcy: Organised strikes and shutdowns declined from 52 in 2018 to zero from 2023 through April 2026.
6. Development momentum: Improved security conditions supported development in Jammu and Kashmir, with 63 major projects worth about ₹80,000 crore approved; over ₹51,000 crore invested and 53 projects completed.
7. Economic revival: Jammu and Kashmir recorded over 2.3 crore tourist arrivals in 2024, alongside increased investment and employment.
8. Public confidence: The combined gains in security, development and normal public life strengthened Vishwas, Vikas and Jan-Kalyan.
9. Preventive success: Intelligence-led operations and stronger coordination helped foil multiple ISIS-inspired plots and maintain very low levels of hinterland terrorism.

Way Forward

1. Eliminate remaining networks: Security agencies should continue dismantling the remnants of terrorist networks, particularly in Jammu and Kashmir.
2. Prevent infiltration: India should use intelligence capabilities and operational experience to take pre-emptive action against emerging threats and launch pads.
3. Strengthen intelligence: Real-time information sharing among central, state and field agencies should remain central to preventing terrorist attacks.
4. Expand de-radicalisation: A nationwide programme should bring vulnerable youth into the mainstream and reduce the appeal of terrorist organisations.
5. Disrupt terror financing: India should continue tracing and blocking hawala, cryptocurrency and other financial channels used by terrorist networks.
6. Counter emerging technologies: Security agencies must continuously adapt to the use of drones, cyber tools, encrypted communication and AI by terrorists.
7. Deepen international cooperation: India should strengthen bilateral and multilateral cooperation against terrorist financing, safe havens and cross-border networks.

Conclusion

India’s counter-terrorism journey has moved from reactive restraint to proactive deterrence and a comprehensive security architecture. Stronger laws, institutions, intelligence systems, technology and international cooperation have reduced terrorist violence and improved public security. However, terrorism continues to evolve through new networks, technologies and financing methods. India therefore needs to remain adaptive, intelligence-led and coordinated while continuously dismantling terrorist networks and their support systems.

Question for practice:

Discuss the changing nature of terrorism and the evolution of India’s counter-terrorism strategy since 9/11.

Source: The Hindu; PIB