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India Unveils Its First Anti-Terror Policy: PRAHAAR

The MHA's PRAHAAR policy addresses cyber-attacks and cross-border terrorism threats to enhance national security.
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Gopi
••6 mins read
PRAHAAR: India’s first comprehensive anti-terror policy targets cross-border, cyber, and CBRN threats through a unified national security framework.
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1. Context: Launch of PRAHAAR and Changing Nature of Terror Threats

The Union Ministry of Home Affairs (MHA) released India’s first comprehensive anti-terror policy titled PRAHAAR on February 23, 2026. It formalises India’s counter-terror strategy amid evolving threats from both cross-border terrorism and emerging domains such as cyber warfare.

The policy acknowledges that beyond state-sponsored terrorism from across the border, “criminal hackers and nation states” are increasingly targeting India through cyber-attacks. This marks a significant shift from conventional terrorism to hybrid and technology-driven threats.

It highlights that India faces threats across all three operational domains — land, air and water — and that critical infrastructure sectors such as power, railways, aviation, ports, defence, space and atomic energy are vulnerable to both state and non-state actors.

"India does not link terrorism to any specific religion, ethnicity, nationality or civilisation." — MHA, PRAHAAR Policy

The release of PRAHAAR institutionalises India’s counter-terror framework. If not backed by coordinated enforcement and technological adaptation, fragmented responses could weaken national security preparedness in an increasingly hybrid threat environment.

GS Linkages:

  • GS3: Internal Security
  • GS2: Governance and institutional coordination
  • IR: Cross-border terrorism

2. Nature of Threat: Cross-Border, Global and Technological Dimensions

The policy reiterates that India has long faced “sponsored terrorism” from across the border, particularly through jihadi outfits and their front organisations. These groups continue to plan and facilitate attacks within India.

India is also identified as a target of global terror groups such as Al-Qaeda and ISIS, which attempt to incite violence through sleeper cells and radicalisation networks. The use of advanced technologies — drones, encryption, dark web platforms, and cryptocurrency — has made detection more complex.

The policy specifically flags increasing use of drones in Punjab and Jammu & Kashmir, and growing links between terrorist outfits and organised criminal networks for logistics and recruitment.

Emerging Dimensions of Terror

  • Use of drones for cross-border facilitation
  • Exploitation of social media and encrypted messaging platforms
  • Funding via crypto wallets and dark web channels
  • Nexus between terror groups and organised crime networks

The hybridisation of terrorism—combining ideology, technology, and criminal networks—creates multi-layered threats. Ignoring this convergence may allow terror ecosystems to adapt faster than law enforcement mechanisms.

GS Linkages:

  • GS3: Cyber Security, Internal Security
  • IR: Transnational terrorism
  • Technology and Governance interface

3. Protection of Critical Infrastructure and CBRNED Threats

PRAHAAR recognises vulnerabilities in strategic sectors such as power, railways, aviation, ports, defence, space, and atomic energy, which form the backbone of India’s economic and national security architecture.

A major concern identified is the risk of terrorists accessing or misusing CBRNED materials (Chemical, Biological, Radiological, Nuclear, Explosive, Digital). The inclusion of “Digital” within CBRNED reflects the recognition of cyber attacks as a critical security threat.

The misuse of drones and robotics for lethal purposes is flagged as an emerging area of concern, signalling the militarisation of commercially available technologies.

Key Security Challenges

  • Interception of CBRNED material access
  • Protection of digital and cyber infrastructure
  • Drone-enabled terror operations
  • Safeguarding atomic and space installations

Critical infrastructure disruption can have cascading economic and strategic consequences. Failure to secure these sectors may convert limited terror strikes into systemic national crises.

GS Linkages:

  • GS3: Disaster Management, Cyber Security
  • Science & Technology in security
  • Infrastructure security

4. Institutional and Legal Strengthening of Counter-Terror Mechanisms

The policy stresses the need to associate legal experts at every stage of investigation — from FIR registration to prosecution. This aims to strengthen conviction rates and prevent procedural lapses.

After the April 22, 2025 Pahalgam terror incident, the NIA conducted coordination meetings with anti-terror units across States, reflecting the move toward greater Centre-State operational integration.

PRAHAAR proposes a uniform anti-terrorism structure across States to standardise procedures and ensure synergistic responses to attacks.

Institutional Measures

  • Integration of legal experts during investigation
  • Enhanced role of NIA in coordination
  • Standardisation of processes across States
  • Criminalisation of all terror acts and financing

Without procedural standardisation and strong legal backing, terror cases risk delayed justice and acquittals. Institutional coherence is central to deterrence.

GS Linkages:

  • GS2: Federalism and Centre-State relations
  • GS3: Role of NIA and internal security institutions

5. Radicalisation, Youth Recruitment and De-radicalisation Strategy

The policy notes that terror groups increasingly target Indian youth through online radicalisation and sleeper networks. Intelligence and law enforcement agencies are engaged in identifying vulnerable individuals.

A graded police response is adopted based on the level of radicalisation, combining surveillance, counselling, and legal action where necessary. The policy also emphasises engagement with moderate religious leaders and NGOs to counter extremist narratives.

Prison systems are identified as potential sites of radicalisation, and de-radicalisation programmes are being implemented to prevent recruitment within correctional institutions.

Preventive Measures

  • Monitoring of online radicalisation
  • Graded response mechanism
  • Engagement of community and religious leaders
  • De-radicalisation programmes in prisons

Counter-terrorism cannot rely solely on force; it requires social resilience. Ignoring early-stage radicalisation risks converting vulnerable youth into long-term security threats.

GS Linkages:

  • GS2: Role of civil society and community institutions
  • GS3: Social dimensions of internal security
  • Essay: Security vs Liberty balance

6. International and Transnational Cooperation

The policy acknowledges that terrorist groups operate from abroad while leveraging local logistics and terrain knowledge. Therefore, national action must be complemented by international and regional cooperation.

This reflects recognition of terrorism as a transnational phenomenon requiring intelligence sharing, financial tracking, and diplomatic engagement.

“National actions, coupled with international and regional cooperation, are key elements in addressing the transnational terrorism challenge.” — PRAHAAR Policy

In an interconnected world, isolated domestic measures are insufficient. Weak international cooperation may allow safe havens and financial pipelines to persist.

GS Linkages:

  • IR: Counter-terror diplomacy
  • FATF, global financial monitoring frameworks
  • Bilateral intelligence cooperation

7. Cyber Security and Hybrid Warfare Concerns

PRAHAAR explicitly recognises cyber-attacks by criminal hackers and nation states as part of the contemporary terror ecosystem. This expands the definition of security threats beyond traditional insurgency.

The inclusion of “Digital” within CBRNED reflects the integration of cyber threats into mainstream counter-terror frameworks. This aligns with global trends of hybrid warfare, where cyber sabotage can complement physical attacks.

Cyber Threat Vectors

  • Infrastructure hacking
  • Digital propaganda and recruitment
  • Anonymous operations via encryption
  • Financial flows through cryptocurrency

Cyber vulnerabilities can undermine sovereignty without conventional warfare. Neglecting digital security may expose strategic sectors to silent but devastating disruptions.

GS Linkages:

  • GS3: Cyber Security
  • Technology and National Security
  • Emerging domains of warfare

Conclusion

PRAHAAR represents a comprehensive shift in India’s counter-terror strategy — from reactive security measures to an integrated, technology-aware, legally grounded and community-sensitive framework.

By addressing cross-border sponsorship, cyber threats, radicalisation, and institutional coordination together, the policy seeks to build long-term resilience against evolving terror ecosystems. Its effectiveness, however, will depend on uniform implementation, inter-agency coordination, and sustained international engagement.

A robust counter-terror architecture is essential not only for national security but also for protecting India’s economic growth, social harmony, and strategic autonomy in an increasingly uncertain global order.

Quick Q&A

Everything you need to know

PRAHAAR is India’s first comprehensive anti-terror policy released by the Ministry of Home Affairs in 2026. It recognises that India faces threats across land, air and maritime domains, including cross-border terrorism, cyber-attacks by nation-states and criminal hackers, and emerging threats such as drones and CBRNED (Chemical, Biological, Radiological, Nuclear, Explosive, Digital) materials. The policy also acknowledges the increasing use of encryption, dark web platforms and crypto wallets for propaganda, funding and operational coordination.

A key feature is its emphasis on protecting critical infrastructure—power grids, railways, aviation, ports, defence, space and atomic energy—from both state and non-state actors. It stresses inter-agency coordination, international cooperation and uniform anti-terror structures across States to ensure standardised responses.

Importantly, PRAHAAR reiterates that India does not associate terrorism with any religion or ethnicity, even while acknowledging cross-border sponsored terrorism. It integrates prevention, investigation, prosecution and de-radicalisation into a single strategic framework, marking a shift from reactive policing to proactive counter-terror governance.

The recognition of cyber-terrorism and digital radicalisation marks an evolution in India’s security doctrine. Terror groups increasingly exploit social media, encrypted messaging apps and crypto-financing to recruit youth and coordinate attacks anonymously. The policy acknowledges that hostile nation-states and criminal hackers can disrupt critical infrastructure, thereby blurring the lines between terrorism and cyber warfare.

For instance, drone-based smuggling of weapons in Punjab and Jammu & Kashmir demonstrates how low-cost technologies can bypass conventional security measures. Similarly, cyber intrusions into power grids or transport systems could have cascading economic and strategic consequences.

By formally integrating cyber threats into counter-terror policy, PRAHAAR aligns India’s security architecture with 21st-century realities. It also underscores the need for specialised cyber forensics, AI-based surveillance and international cooperation to track cross-border digital networks.

PRAHAAR adopts a graded and multi-stakeholder approach to counter radicalisation. Once vulnerable youth are identified, authorities implement responses based on the degree of radicalisation—ranging from counselling and community engagement to legal action where necessary.

The policy emphasises collaboration with moderate religious leaders, NGOs and community stakeholders to counter extremist narratives. It also highlights preventive measures within prisons to stop hardcore inmates from radicalising others. De-radicalisation programmes aim at reintegration rather than mere punishment.

This approach reflects lessons from global experiences, such as the UK’s Prevent Strategy, while adapting them to India’s socio-cultural context. By combining law enforcement with social intervention, the policy seeks to address both the symptoms and root causes of violent extremism.

While standardisation ensures coordinated and swift responses, India’s federal structure presents operational challenges. Law and order is a State subject under the Constitution, and varying capacities among States may hinder uniform implementation.

On the positive side, a common framework can enhance intelligence sharing, reduce jurisdictional overlaps, and improve prosecution success rates. The involvement of legal experts from FIR registration to trial is a progressive step that may strengthen conviction rates under laws like the UAPA.

However, concerns remain about potential central overreach and civil liberty implications. Balancing national security imperatives with federal autonomy and fundamental rights will determine the policy’s legitimacy and effectiveness.

Following an incident like the April 2025 Pahalgam attack, PRAHAAR envisions a coordinated response involving the NIA, State anti-terror units and intelligence agencies. Immediate steps would include securing evidence, digital forensics, and disruption of logistical networks linked to cross-border handlers.

The policy’s emphasis on associating legal experts ensures airtight prosecution. Simultaneously, preventive measures—such as monitoring sleeper cells and tightening drone surveillance—would be activated. International cooperation would be sought if transnational elements are involved.

Thus, PRAHAAR transforms crisis response into systemic resilience, integrating prevention, prosecution and international diplomacy to deter future attacks while maintaining communal harmony and constitutional values.

Attribution

Original content sources and authors

VS
Vijaita Singh
TH
The Hindu
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