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The Union Home Ministry has unveiled India’s first National Counter Terrorism Policy and Strategy (PRAHAAR). The policy seeks to criminalise all terrorist acts, disrupt terror financing, deny logistical support, and strengthen coordination across Central and State agencies. The policy marks a structural shift from reactive counter-terror responses to an integrated, ecosystem-based national security framework covering land, air, water, cyber, and financial domains. The move assumes significance amid rising cross-border terrorism, drone-enabled attacks, and digital radicalisation.

What is the rationale behind this policy?

1. The move follows the April 22, 2025 Pahalgam terror incident, which exposed vulnerabilities in intelligence coordination and emerging drone misuse. 
2. Previously, counter-terror responses were largely reactive and dispersed across agencies without a single doctrinal framework. 
3. The policy is significant because it integrates prevention, detection, prosecution, and financial disruption under one strategy, covering both state and non-state actors. 
4. It also formally recognises technological threats such as encrypted platforms, cryptocurrency, and dark web logistics, marking a shift from traditional cross-border terror focus to hybrid and networked terror ecosystems.

What is the doctrinal architecture of PRAHAAR: Pillar-wise Breakdown

1. P-Prevention of Terror Attacks; Focus: Intelligence-led, proactive neutralisation. It includes
   1. Intelligence Primacy: Intelligence-guided counter-terror approach; threat neutralisation before execution.
   2. MAC & JTFI Framework: Real-time intelligence aggregation through Multi Agency Centre (MAC) and Joint Task Force on Intelligence under IB.
   3. OGW Disruption: Systematic dismantling of Over Ground Worker logistics and recruitment networks.
   4. Cyber Disruption: Targeting online propaganda, recruitment modules, encrypted communication misuse.
   5. Critical Infrastructure Security: Protection of power, railways, aviation, ports, defence, space, atomic energy sectors.
   6. Border Surveillance: Technological tools deployed across land, air and maritime frontiers.
   7. Core Shift: From reactive policing to preventive security architecture.
2. R-Responses (Swift & Proportionate); Focus: Layered operational response model. It includes:
   1. Local Police as First Responder: Federal structure respected; decentralised operational response.
   2. State ATS & Special Counter terrorism (CT) Units: Specialised anti-terror forces in vulnerable States.
   3. NSG as National Nodal Force: National Security Guard for major attacks and capacity building.
   4. SOP-Based Coordination: Standard Operating Procedures for apex-level coordination via MHA.
   5. CAPF Deployment: Central Armed Police Forces assisting States in counter-terror operations.
   6. High Conviction Emphasis: NIA-led investigations ensuring deterrence through prosecution.
   7. Core Shift: Structured escalation matrix for response.
3. A-Aggregating Internal Capacities; Focus: Whole-of-Government synergy. It includes:
   1. Modernisation Mandate: Continuous upgradation of weapons, surveillance tools, training modules.
   2. Standardisation Across States: Uniform anti-terror structures, investigation methodologies.
   3. BPR&D Role: Training and best practice dissemination for State Police & CAPFs.
   4. NSG Urban Combat Training: Specialised combat readiness for metropolitan threats.
   5. Resource Gap Identification: Institutional capacity audit and correction
   6. Core Shift: Elimination of silo-based security functioning.
4. H-Human Rights & Rule of Law Based Processes; Focus: Constitutional legitimacy. It includes:
   1. Legal Framework Anchoring: The Unlawful Activities (Prevention) Act (UAPA), 1967, as principal law; supported by BNS 2023, BNSS 2023, BSA 2023, PMLA 2002, Arms Act 1959, Explosives Act 1908.
   2. Judicial Oversight: Multi-tier judicial review up to the Supreme Court.
   3. Human Rights Act 1993: Protection against rights violations.
   4. International Commitments: Adherence to Universal Declaration of Human Rights (UDHR) 1948 and International Covenant on Civil and Political Rights (ICCPR).
   5. Due Process Safeguards: Appeals and legal redressal mechanisms ensured.
   6. Core Shift: Security operations embedded within constitutional democracy.
5. A-Attenuating Conditions Conducive to Terrorism; Focus: Addressing root drivers. It includes:
   1. Graded De-radicalisation: Calibrated intervention based on degree of radicalisation.
   2. Community Engagement: Involvement of religious leaders, NGOs, moderate preachers.
   3. Prison Monitoring: Preventing indoctrination within correctional facilities.
   4. Youth Engagement: Constructive programs to prevent extremist recruitment.
   5. Socio-Economic Interventions: Addressing poverty, unemployment, housing and education gaps.
   6. Women & Youth Empowerment Schemes: Scholarships and loan support to reduce vulnerability.
   7. Core Shift: Terrorism treated as socio-psychological and developmental challenge, not merely law-and-order issue.
6. A-Aligning & Shaping International Efforts; Focus: Transnational cooperation. It includes:
   1. Mutual Legal Assistance Treaties (MLATs) & Extradition Treaties: Legal cooperation for evidence sharing and fugitive return.
   2. Joint Working Groups (JWG): Bilateral intelligence engagement platforms.
   3. UN Designation Support: Pursuit of global terrorist listings.
   4. Agency-to-Agency Cooperation: Intelligence sharing with foreign counterparts.
   5. Global ICT Misuse Countering: Addressing terrorist exploitation of digital ecosystems.
   6. Core Shift: Counter-terror extended beyond national jurisdiction.
7. R-Recovery & Resilience (Whole-of-Society Approach); Focus: Post-attack stabilisation. It includes:
   1. Public-Private Partnership: Private sector participation in recovery.
   2. Civil Administration Leadership: Reconstruction and restoration.
   3. Psychological Rehabilitation: Doctors, psychologists, civil society involvement.
   4. Community Reintegration: Social healing and confidence rebuilding.
   5. Preventive Reinforcement: Strengthened security measures post-incident.
   6. Core Shift: From counter-terror to societal resilience model.

How Does the Policy Restructure India’s Counter-Terror Governance Framework?

1. National Framework Institutionalisation: Establishes India’s first unified counter-terror doctrine integrating Centre-State coordination.
2. Ecosystem Approach: Targets not only terrorists but also financiers, handlers, recruiters, and facilitators.
3. Multi-Domain Coverage: Addresses threats across land, air, water, cyber, and financial systems.
4. Inter-Agency Coordination: Strengthens operational synergy among intelligence, enforcement, and financial monitoring agencies.
5. Legal Backing: Aims to criminalise all forms of terrorist support infrastructure.

How Does the Policy Address Cross-Border and State-Sponsored Terrorism?

1. Recognition of Proxy Warfare: Identifies state and non-state actors targeting India through terrorism.
2. Cross-Border Networks: Acknowledges foreign handlers coordinating logistics and recruitment.
3. Global Jihadist Linkages: Notes influence of outfits such as Al-Qaeda and IS in inciting lone-wolf or cell-based violence.
4. Punjab & J&K Linkages: Recognises drone-based smuggling of arms and narcotics across borders.
5. Transnational Cooperation: Emphasises international collaboration to counter financing and safe havens.

How Does the Policy Respond to Emerging Technological Threats?

1. Drone Regulation: Identifies misuse of drones for smuggling arms and reconnaissance.
2. Encrypted Platforms: Flags encrypted messaging apps as tools for coordination.
3. Cryptocurrency Monitoring: Recognises dark web and crypto wallets as terror-financing channels.
4. Cyber Radicalisation: Targets online propaganda and recruitment networks.
5. Digital Forensics: Strengthens use of technical intelligence in disruption operations.

How Does the Policy Strengthen Preventive and Pre-Emptive Mechanisms?

1. Pre-Emptive Intelligence: Enhances predictive threat assessment models.
2. Community Engagement: Involves civil society and religious leaders to counter radicalisation.
3. Youth De-Radicalisation: Focuses on preventing extremist recruitment among youth.
4. Capacity Building: Improves training of state police forces in counter-terror techniques.
5. Chemical, Biological, Radiological, Nuclear, and high-yield Explosives (CBRNE) Preparedness: Recognises risks of Chemical, Biological, Radiological, Nuclear, and Explosive materials.

How Does the Policy Reinforce Institutional Accountability and Federal Balance?

1. Central-State Synergy: Promotes coordinated response while respecting federal structure.
2. Role of NIA: Strengthens investigative mandate of the National Investigation Agency in major terror cases.
3. Legal Standardisation: Ensures uniform procedures across states.
4. Process Standardisation: Encourages similar and synergistic response frameworks.
5. Parliamentary Oversight Potential: Opens scope for legislative scrutiny of implementation effectiveness.

What Are the Regulatory and Legal Implications of the Policy?

1. Criminalisation Framework: Broadens scope to include logistical and financial support.
2. Financial Disruption: Targets funding channels through financial intelligence units.
3. Safe Haven Denial: Focuses on dismantling recruitment and shelter networks.
4. Surveillance Expansion: Raises concerns on balancing security with privacy rights under Article 21.
5. Counter-Terror Cell Coordination: Enhances role of specialised Counter Terrorism Cells.

Conclusion

The National Counter Terrorism Policy marks a transition from fragmented counter-terror responses to a structured, ecosystem-based security doctrine. Its effectiveness will depend on inter-agency coordination, federal cooperation, technological capability, and safeguards against misuse. Institutional balance between national security and civil liberties remains central to sustainable implementation.

PYQ Relevance

[UPSC 2023] Give out the major sources of terror funding in India and the efforts being made to curtail these sources. In the light of this, also discuss the aim and objective of the ‘No Money for Terror (NMFT)’ Conference recently held at New Delhi in November 2022.

Linkage: This question directly maps to GS Paper 3 (Internal Security), particularly terror financing, money laundering, and transnational security cooperation. It links with India’s PRAHAAR doctrine and NMFT initiative, highlighting the financial disruption pillar of counter-terror strategy and global coordination against terror funding networks.