Context

• The September 11, 2001 attacks transformed global counter-terrorism.
• Over the past 25 years, terrorism has evolved from large, centrally controlled organisations into decentralised networks and lone-wolf attacks.
• Drones, cyber capabilities, and artificial intelligence have created new security challenges.
• India’s response has similarly shifted from diplomatic restraint to active deterrence against cross-border terrorism.

The Changing Nature of Global Terrorism

• The rise of al-Qaeda and the Islamic State demonstrated the destructive potential of international terrorist organisations.
• However, their decline as centralised structures has given rise to smaller, autonomous groups and individual attackers.
• Modern terrorists exploit encrypted communications, digital propaganda, cyber operations, and emerging technologies.
• These developments make it difficult to identify threats before attacks occur.
• Counter-terrorism therefore requires not only military action but also intelligence-sharing, technological preparedness, and efforts to prevent radicalisation.

India’s Early Struggle with Cross-Border Terrorism

• India’s experience with terrorism predates 9/11. The assassination of Rajiv Gandhi in 1991, the Mumbai serial blasts of 1993, and the Coimbatore blasts of 1998 exposed weaknesses in national security.
• The IC-814 hijacking in 1999 forced India to release Pakistan-based terrorists, including Masood Azhar, demonstrating the limitations of its response mechanisms.
• The Parliament attack in December 2001 led to Operation Parakram, but nuclear deterrence and international pressure prevented direct military action against Pakistan.

The Passive Response and Its Consequences

• India suffered several attacks, including those at Akshardham, Varanasi, Pune, and Delhi.
• The 26/11 Mumbai attacks in 2008 became a defining moment in India’s fight against terrorism.
• Despite evidence of Pakistan-based involvement, India avoided military retaliation.
• This approach reduced the immediate risk of escalation but also created the perception that terrorist attacks could occur without proportionate consequences.
• The need for a stronger deterrent became increasingly evident.

The Shift Towards Active Deterrence

• After the change of government in 2014, India adopted a more assertive counter-terrorism policy.
• The Uri attack in September 2016 led to surgical strikes across the Line of Control, marking a significant departure from earlier restraint.
• Following the Pulwama attack in February 2019, the Indian Air Force conducted strikes on a Jaish-e-Mohammed camp in Balakot.
• This demonstrated India’s willingness to cross Pakistani airspace to target terrorist infrastructure.
• The Pahalgam attack in April 2025 led to Operation Sindoor, launched on May 6–7.
• The operation targeted Pakistan-based terror infrastructure and reinforced India’s policy of imposing direct costs on those responsible for cross-border terrorism.

India’s Contemporary Counter-Terrorism Framework

• The launch of PRAHAAR, India’s National Counter-Terrorism Policy and Strategy, in February 2026 reflects the development of a comprehensive national framework.
• Its emphasis on whole-of-government and whole-of-society approaches recognises that terrorism cannot be defeated through military force alone.
• Four priorities are essential:
  • Eliminating Terrorist Networks: Security agencies must continue dismantling terrorist networks, particularly in Kashmir.
  • Preventive Military Action: India must maintain the capability to respond to emerging threats across the Line of Control.
  • De-radicalisation and Social Integration: Education, employment, community engagement, and rehabilitation can reduce the appeal of extremist ideologies.
  • Disrupting Terror Financing: International cooperation is necessary to trace and block financial networks supporting terrorist organisations.

The Importance of International Cooperation

• Terrorism is a transnational threat requiring coordinated international action.
• India has used platforms such as the Shanghai Cooperation Organisation (SCO) and BRICS to oppose countries that support or shelter terrorists.
• The inclusion of a paragraph on the Pahalgam attack in the BRICS Delhi Declaration reflects growing international recognition of India’s security concerns.
• India’s consistent opposition to double standards on terrorism is essential for building an effective global response.

Conclusion

• Twenty-five years after 9/11, terrorism remains a serious global threat despite changes in its organisational structure and methods.
• India has moved from a reactive policy to active deterrence and comprehensive counter-terrorism.
• Military action must be combined with intelligence coordination, technological preparedness, de-radicalisation, financial disruption, and diplomacy.
• India’s long-term success will depend on preventing terrorism before attacks occur while ensuring that terrorism never becomes a strategic asset for any state.