National Counter-Terrorism Policy and Strategy (PRAHAAR)

Introduction

The Ministry of Home Affairs (MHA) has introduced 'PRAHAAR', India’s inaugural comprehensive National Counter-Terrorism Policy and Strategy. This initiative signifies a fundamental paradigm shift in India's internal security doctrine, moving from a traditionally reactive stance to a proactive, intelligence-driven, and "whole-of-government" approach.

The strategy is built upon the dual pillars of hard-power enforcement and soft-power mitigation. It integrates real-time intelligence sharing through the Multi Agency Centre (MAC), elite tactical intervention by the National Security Guard (NSG), and a robust legal framework centred on the Unlawful Activities (Prevention) Act (UAPA) and newly enacted criminal codes. Beyond enforcement, PRAHAAR emphasises community-led de-radicalisation and international diplomatic alignment. While the policy provides a modernised roadmap for national security, its success remains contingent on overcoming federal jurisdictional friction, bridging technological gaps among state police forces, and ensuring a consistent balance between stringent security measures and the protection of civil liberties.

Core Pillars of the PRAHAAR Strategy

The 'PRAHAAR' acronym defines the seven functional pillars of the national counter-terrorism mechanism:

Detailed Strategic Components

1. Prevention and Intelligence-Led Policing

The strategy prioritises a proactive defence anchored by the Multi Agency Centre (MAC) and the Joint Task Force on Intelligence (JTFI) under the Intelligence Bureau.

• Intelligence Sharing: Real-time dissemination of data between central and state agencies.

• Infrastructure Protection: Enhanced security for critical sectors, including atomic energy, space, defence, power, and aviation.

• Dismantling Networks: Targeted operations against over-ground worker (OGW) support networks and illegal arms syndicates.

• Border and Maritime Security: Deployment of advanced technologies by border guarding forces and immigration authorities to secure land, air, and sea domains.

2. Operational Response and Capacity Building

The policy establishes a clear hierarchy and standardisation for tactical responses:

• First Responders: Local police serve as the primary line of defence, supported by State Counter-Terror (CT) Forces and Central Armed Police Forces (CAPFs).

• Elite Intervention: The National Security Guard (NSG) acts as the nodal agency for major attacks and leads capacity-building for state-level units in urban combat.

• Legal Deterrence: The National Investigation Agency (NIA) works with state police to ensure high prosecution rates, creating a long-term legal deterrent.

• Modernisation: Mandated continuous acquisition of advanced weaponry and technology, facilitated by the Bureau of Police Research & Development (BPR&D).

3. Judicial Framework and Human Rights

The strategy emphasises that counter-terrorism must remain rooted in the justice system:

• Legal Backbone: Operations are governed by the Unlawful Activities (Prevention) Act (UAPA) 1967, the Prevention of Money Laundering Act (PMLA) 2002, and the Arms Act 1959.

• New Criminal Codes: Integration of the Bharatiya Nyaya Sanhita (2023), Bharatiya Nagarik Suraksha Sanhita (2023), and Bharatiya Sakshya Adhiniyam (2023).

• Civil Liberties: Commitment to the Protection of Human Rights Act (1993) and international standards like the Universal Declaration of Human Rights (1948).

• Judicial Redress: A multi-level system from District Courts to the Supreme Court ensures due process and opportunities for appeal.

4. Soft Power and De-radicalisation

PRAHAAR adopts a multi-stakeholder framework to counter extremist narratives:

• Community Engagement: Involving religious leaders, NGOs, and community heads to address radicalisation at the root.

• Graded Response: Prioritising rehabilitation and socio-economic empowerment for radicalised youth in minor cases, while reserving legal action for hardcore elements.

• Prison Management: Implementing measures to curb prison radicalisation by separating extremist ideologues from vulnerable inmates.

5. International Cooperation

The policy acknowledges the transnational nature of modern terror:

• Diplomatic Tools: Utilisation of Mutual Legal Assistance Treaties (MLATs), Extradition Treaties, and Joint Working Groups (JWGs).

• Global Designation: Collaborating with international partners to designate terrorists at the United Nations.

• Safe Havens: Strategic efforts to deny safe havens to fugitives through evidence sharing and deportation.

Evolving Terror Threats

The PRAHAAR strategy is designed to address a complex and shifting threat landscape:

• State-Sponsored Terrorism: Continued cross-border support for jihadi outfits.

• Global Linkages: Efforts by groups like Al-Qaeda and ISIS to incite violence through online radicalisation and sleeper cells.

• Technological Threats: The use of drones for logistics and surveillance (notably in Punjab and Jammu & Kashmir) and the risk of CBRNED (Chemical, Biological, Radiological, Nuclear, Explosive, and Digital) materials.

• The Nexus: Collaboration between organised crime syndicates and terror groups for funding and recruitment.

• Digital Exploitation: Misuse of the dark web, encrypted messaging, and cryptocurrencies for anonymous financing and propaganda.

Implementation Challenges

Despite its comprehensive scope, the strategy faces several practical hurdles:

• Federal Friction: Under the Indian Constitution, "Public Order" and "Police" are State subjects. Centralisation attempts can lead to jurisdictional overlaps and operational delays.

• Capacity Asymmetries: Local police forces often lack the funding and specialised training required for cyber-forensics or dark web investigations.

• Subjectivity: Measuring "radicalisation" for a "graded response" is inherently psychological, lacking clear legal benchmarks, which may lead to inconsistent application.

• Institutional Silos: Historical "turf wars" between various security agencies may hinder the "whole-of-government" synergy PRAHAAR seeks to achieve.

• Legal Concerns: Continued reliance on stringent laws raises concerns regarding prolonged pre-trial detentions and historically low conviction rates.

Measures for Strategic Strengthening

To maximise the efficacy of PRAHAAR, the following enhancements are proposed:

• Standardisation: Establishing uniform structures and investigation methods for all State Anti-Terrorism Squads (ATS).

• Technological Countermeasures: Partnering with the private sector to track crypto-based financing and using big data/machine learning to detect suspicious financial patterns.

• Platform Accountability: Amending IT Rules to hold social media platforms responsible for extremist content and mandating independent radicalisation audits.

• Specialised Prosecution: Developing a dedicated cadre of federal prosecutors trained in cyber forensics to improve conviction quality.

• Data Access: Establishing fast-track international agreements for real-time access to encrypted data during critical investigations.