National Counter‑Terrorism Policy & Strategy “PRAHAAR”: India’s First Unified Counter‑Terror Doctrine
The Ministry of Home Affairs (MHA) has released India’s first National Counter‑Terrorism Policy & Strategy titled “PRAHAAR” (meaning “strike”), laying down a unified, intelligence-guided and rights-compliant framework to prevent and counter evolving terror threats. The document identifies modern risk drivers such as cross-border terrorism, drones, encrypted platforms, dark web use, crypto wallets, organised criminal networks, and even attempts to access CBRNED (Chemical, Biological, Radiological, Nuclear, Explosive, Digital) material.
What is PRAHAAR (and what it aims to do)?
PRAHAAR flows from India’s stated policy of “zero tolerance” against terrorism and sets out a structured national approach that combines prevention, swift response, capacity-building, legal safeguards, de-radicalisation, international cooperation, and societal resilience. The policy emphasises that India does not link terrorism to any religion, ethnicity, nationality, or civilisation.
For UPSC, PRAHAAR is important because it formalises a “whole-of-government” and “whole-of-society” approach and makes prevention the cornerstone of counter-terror operations.
The 7 core pillars of PRAHAAR (PRAHAAR = the doctrine)
The MHA document defines seven pillars that together form India’s counter-terrorism strategy:
- Prevention of terror attacks to protect Indian citizens and interests.
- Responses that are swift and proportionate to the threat.
- Aggregating internal capacities to achieve synergy in a whole-of-government approach.
- Human rights and ‘Rule of Law’ based processes for mitigation of threats.
- Attenuating conditions enabling terrorism, including radicalisation.
- Aligning and shaping international efforts to counter terrorism.
- Recovery and resilience through a whole-of-society approach.
How PRAHAAR operationalises counter-terror strategy
1) Prevention: intelligence-led, disruption-focused
India’s approach is described as pro-active and primarily “Intelligence-Guided”, prioritising intelligence gathering and dissemination to executive agencies to neutralise threats. The document designates the Multi Agency Centre (MAC) along with the Joint Task Force on Intelligence (JTFI) in the Intelligence Bureau as nodal platforms for real-time sharing of counter-terror inputs across the country and coordinated prevention.
PRAHAAR also explicitly flags misuse of the internet for communication, recruitment, and propaganda, and states that law enforcement agencies undertake proactive disruption of online terrorist networks and recruitment efforts. It further highlights action against over-ground worker (OGW) modules and efforts to disrupt terror funding networks under Indian legal frameworks.
2) Response: local police first, specialised forces support
The policy states that local police are the first responders to any attack, supported by specialised state and central anti-terror forces. It identifies the National Security Guard (NSG) as the nodal national counter-terror force under MHA for assisting state forces in major attacks and for capacity-building.
On investigation, PRAHAAR notes that the NIA and State Police agencies conduct counter-terror investigations and emphasises the role of effective prosecution as a deterrent.
3) Aggregating capacities: modernisation and standardisation
PRAHAAR stresses modernisation of security and law enforcement agencies through acquisition of tools/technology/weaponry and training for new skills and tactics. It also notes that standardisation of processes helps ensure synergistic responses and mentions a move towards uniform anti-terrorism structures in the States by identifying gaps and strengthening resources, training and methodologies.
The document references capacity-building roles of institutions such as the BPR&D (training initiatives) and the NSG’s specialised urban combat training to support state CT forces.
4) Human rights & rule of law: safeguards built-in
PRAHAAR explicitly frames counter-terror action within human rights and the rule of law, citing legal safeguards and due process. It identifies the UAPA, 1967 as the principal legal regime to deal with terrorism in India, supplemented by newer criminal codes (BNS, BNSS, BSA, 2023) and other laws like the Arms Act and PMLA.
5) De-radicalisation and addressing enabling conditions
The policy recognises attempts to recruit youth and outlines graded responses, community engagement with civil society/religious leaders/NGOs, youth engagement, prison monitoring and de-radicalisation measures. It also mentions addressing poverty and unemployment through government schemes to reduce vulnerabilities that can be exploited by inimical elements.
6) International cooperation: treaties and joint mechanisms
PRAHAAR stresses the trans-national character of terrorism and lists cooperation instruments like MLATs, Extradition Treaty/Arrangement, JWGs, and MoUs for information/evidence sharing and legal cooperation. It also mentions India’s effort to seek designation of wanted terrorists at the UN with international support.
7) Recovery & resilience: whole-of-society approach
The policy endorses a whole-of-society approach and notes public-private partnerships and involvement of doctors, psychologists, lawyers, NGOs, religious/community leaders for reintegration and resilience after attacks, alongside civil administration-led reconstruction.
Why PRAHAAR matters
PRAHAAR is significant because it formally codifies India’s counter-terror posture as prevention-first, intelligence-guided, multi-agency, and anchored in legal safeguards, while explicitly acknowledging technology-enabled threats (drones, dark web, encryption, crypto) and CBRNED risks. It also strengthens the analytical frame for GS3 answers on terrorism by linking operational response with capacity-building, human rights, de-radicalisation and international legal cooperation.
Challenges and concerns
- Federal coordination: The strategy relies on seamless cooperation between central agencies and state police forces through mechanisms like MAC/JTFI, which can be difficult to operationalise uniformly across states.
- Tech vs privacy: The policy’s emphasis on surveillance, disruption of online networks, and countering anonymous digital tools makes oversight, proportionality and rights safeguards critical.
- Capacity gaps: PRAHAAR itself highlights the need for continual training, modernisation and standardisation across states—suggesting uneven readiness.
FAQs
Q1. What is PRAHAAR?
PRAHAAR is India’s first National Counter‑Terrorism Policy & Strategy released by MHA, built on zero tolerance and structured around seven pillars from prevention to recovery and resilience.
Q2. What are the seven pillars of PRAHAAR?
Prevention, swift/proportionate response, aggregating capacities, human rights & rule of law, reducing enabling conditions (including radicalisation), international alignment, and recovery & resilience.
Q3. Which platforms are highlighted for real-time counter-terror intelligence sharing?
The policy identifies the Multi Agency Centre (MAC) and the Joint Task Force on Intelligence (JTFI) in IB as nodal platforms for efficient and real-time sharing of CT inputs.
Q4. Who is the first responder to a terror attack, and what is NSG’s role?
Local police are the first responders, and NSG is the nodal national counter-terror force under MHA for assistance in major attacks and capacity-building.
Q5. What new-age threats does PRAHAAR explicitly mention?
It mentions drones, encryption, dark web, crypto wallets, organised criminal networks, cyber-attacks, and risks related to CBRNED material.
Q6. Which law does the policy cite as India’s principal anti-terror law?
The document states that the Unlawful Activities (Prevention) Act, 1967 is the principal legal regime to deal with terrorism in India.
