Terror, Tactics & Triumph: India’s Counter-Terror Doctrine 2025
- Hindu College Gazette Web Team
- 3 days ago
- 12 min read
India’s approach to terrorism has gone through an intense transformation over the past decade. Since independence, India’s counter-terrorism policy has been typified by restraint and timidity to carry out overt, cross-border military operations against terror enclaves. The mantra was to respond primarily through defensive steps, diplomatic action, and internal security workings. Still, the release of detailed accounts of Operation Sindoor in June 2025 makes it clear that those days of measured, limited responses are fast dwindling into history. Today, under Prime Minister Narendra Modi’s leadership, India is building a much stronger and proactive doctrine, one that seeks to play havoc with the terrorist infrastructure before it can threaten Indian soil. Operation Sindoor launched in response to a brutal terror attack in Pahalgam on April 22, 2025, exemplifies this quantum leap.
Background
Long before Operation Sindoor, India’s counter-terrorism posture was bound in defensive measures and circumspect diplomacy. Following the 2001 Parliament attack, a landmark that killed nine individuals and is linked to Pakistan-backed militant groups, India assembled troops along the western border but ultimately desisted from launching a large-scale incursion into Pakistani territory. Security analysts noted that India chose to “wear down the insurgents until the demand is dropped or modified,” focusing dialogue and internal policing over cross-border forays. Even in the early 2000s, India reflected a hesitant attitude, fending off pressure from powerful parliamentary voices such as L.K. Advani who urged a tough and stronger approach. It is exemplified by the Prevention of Terrorism Act (POTA) of 2002 which provided law enforcement more powers but was rescinded only two years later for the reason that of fears of abuse and political backlash. India's policy before 2014 was influenced significantly by the country's preoccupation with domestic issues and its perception of how the global powers, particularly those concerned about regional instability in South Asia, would react.
Together, these episodes illustrate why, until roughly a decade ago, India’s counter-terrorism policy could justly be described as defensive, reactive and circumspect. Political leaders feared domestic backlash over human-rights complaints, military planners worried about unintended escalation and diplomats preferred long-term confidence-building measures over short-lived battlefield gains. It was an era when the mantra was to “deter through readiness” rather than to “defeat by intervention.” By contrast, Operation Sindoor signals the end of that first chapter and the beginning of a proactive, intelligence-driven doctrine designed to strike terror at its roots, wherever those roots may lie.
Beyond the Battlefield: Operation Sindoor and the New Architecture of National Security
Operation Sindoor reflects a deeper transformation in India’s security doctrine, where kinetic responses are now matched with psychological, narrative and diplomatic warfare. For decades, India’s counter-terrorism response was reactive and fragmented across state jurisdictions, caught in bureaucratic inertia and often shaped by geopolitical caution. Operation Sindoor’s layered execution through cyber-monitoring, surgical ground action, international legal briefings and disinformation counter-strikes signals a maturation of India’s security thinking into what experts now term a “comprehensive deterrence framework.”The passivity started to change drastically when on the night of January 1–2, 2016, four militants of the United Jihad Council, widely attributed to Jaish-e-Mohammed, disguised in Indian police and military uniforms penetrated the heavily fortified perimeter of the Pathankot Air Force Station, part of India’s Western Air Command. They set fire to aircraft hangars and engaged in an 80-hour siege that left seven security personnel dead and all four attackers neutralized by January 4. The audacity of targeting one of India’s highest-security installations sent shockwaves through both the military and civilian leadership: if militants could strike inside a “fortress” base, no location was inviolable. In the aftermath, the government ordered a comprehensive security audit of over 3,000 sensitive installations nationwide and expedited enhancements to perimeter defenses, rapid-response forces and inter-agency coordination - an unmistakable sign that India’s posture of “deterrence through readiness” was no longer sufficient.
The national call for a more ferocious response was boosted by this. It was September 2016 when a terrorist attack on the Indian Army’s convoy at URI killed 19 soldiers. In response to which India carried out what it described as "surgical strikes" destroying terrorist launch pads along the Line of Control in Pakistan-Occupied Kashmir. While Pakistan complained that the strikes never occurred, India's Ministry of Defence said that numerous terror cells were eradicated and stated that a bunch of terrorists who wanted to infiltrate militants into Indian territory were killed. The most significant transformation came with the air strike on a Jaish-e-Mohammed camp on February 26, 2019 in Balakot, Pakistan which is its first recognised air operation within Pakistan since 1971. The very fact that Indian warplanes crossed the de facto border and that Pakistan answered by downing an Indian MiG-21 and arresting Wing Commander Abhinandan represented a quivering shift. For the first time since the nuclearisation of South Asia, both air forces had engaged across the LoC, accentuating India’s willingness to give a bold response.
These belligerent moves, from defensive reorganizations after Pathankot to clandestine ground raids post-URI, and finally to overt air operations over Balakot trace the evolution of India’s counter-terrorism doctrine.
The Prime Minister's Office, National Security Council, RAW, NIA and MEA all operated together to execute Operation Sindoor in phases as opposed to the rambling reaction to the 2008 Mumbai attacks. Although it is adapted for India's particular demographic, geographic and diplomatic circumstances, this "whole-of-government" strategy is similar to Western hybrid warfare response models. Additionally, it denotes a change from territorial defense to threat-agnostic strategic depth, where non-state actors are given the same serious consideration as traditional adversaries.
Catalysts for Change
The Long War: Terrorism’s Lingering Wounds on India
Between 2001 and 2024, there were over 20,000 terror-related fatalities and nearly 60,000 injuries according to data from the South Asia Terrorism Portal. Across Kashmir, Punjab, the Northeast and major cities like Mumbai, Delhi, Bangalore and Pune, India has been betrothed in a slow-burning war for decades. In contrast, 9/11 is described in the West as the most significant terror incident of the twenty-first century.
The economic cost of this conflict is immense. The Institute for Economics & Peace estimates that India lost over $120 billion to terrorism-related disruptions between 2000 and 2022 including impacts on tourism, trade and local infrastructure. But more than money, terrorism in India has deep psychological and social implications creating communities of orphans, widows, disabled soldiers and radicalized youth who slip through the cracks of rehabilitation.
Operation Sindoor may be a decisive turning point in tactical doctrine but its significance will also be judged by whether India can evolve its long-term resilience model with better intelligence sharing across states, deradicalization programs rooted in local communities, counter-narratives in madrasa networks, and psychological services for survivors.
From Defensive Deterrence to Proactive Doctrine
By early 2025, a number of factors had coalesced to form India’s new counter-terrorism policy. Progress in intelligence gathering through greater signal interception, upgraded human intelligence (HUMINT), and growing cooperation with allied services like the U.S. Department of Homeland Security allowed New Delhi to pinpoint terror camps. In the Indo-Pacific framework, India joined in initiatives such as the QUAD Counterterrorism Working Group and took part in joint military-training exercises attentive to urban warfare, learning from Gulf partners who had antagonized insurgents in Yemeni cities. At home, restructurings in police modernisation and expanded legal structure like enacting the UAPA and setting up specialised counter-terrorism squads further moved the paradigm towards earlier detection and disruption of plots. Secretary-level dialogues with the United States helped find the possibility of establishing a directorate akin to the U.S. Director of National Intelligence with the objective of efficiently smooth-run inter-agency coordination under India’s NSA. These gradual changes set the stage for a strategic reorientation giving a clear message that terrorist sanctuaries in neighbouring countries would no longer be safe havens.
Operation Sindoor’s Genesis and Objectives
28 civilians were killed and numerous others were injured when a well-armed group of terrorists attacked tourists in Pahalgam, Jammu and Kashmir, on April 22, 2025. On the same day, intelligence from various sources including intercepted messages from Pakistani terror handlers, showed that the camp responsible was situated in the Kotli region of Pakistan Occupied Kashmir. Prime Minister Modi was on an official visit to Saudi Arabia but it was cut short immediately after the attack. PM Modi returned to India to chair an emergency meeting with CCS. And the very next day, from the soil of Bihar, vowed that “those who murder our children and take the sindoor from our widows will face severe consequences.” Meanwhile, stringent diplomatic actions were also pursued like holding the Indus Water Treaty in abeyance and revoking all Pakistani visas. Within two weeks, the Modi government, in synergy with the Indian Army, NSA, External Affairs Minister, and the Research and Analysis Wing (RAW) launched Operation Sindoor. It was a multi-pronged cross-border mission to give a crippling blow to the terror infrastructure, dismantle propaganda networks and deliver a culturally resonant message of nemesis. The operation’s codename literally meaning “vermilion,” the traditional powder symbolizing a Hindu bride’s marital status, was deliberately chosen to signify that terrorists’ violence had stripped widows of their dignity and that India would respond in kind, offering “blood in exchange for sindoor.”
Phase I: Precision Intelligence and Surgical Strikes
Operation Sindoor began with a coordinated intelligence offensive involving RAW, the Indian Army and signals intelligence (SIGINT) units. Through satellite imagery, drone surveillance and electronic interception, India mapped nineteen active terror camps and eight auxiliary training sites across Kotli and Muzaffarabad. Lashkar-e-Taiba’s encrypted communications were deciphered, divulging supply lines and recruitment networks. The Indian Army and Air Force with this actionable intelligence, hurled a series of night-time precision strikes and targeted leadership cadres, arms depots and logistical hubs. The hallmark of this phase was its surgical exactness and curtailed collateral damage while eradicating high-value targets which suggested a break from past doctrines of reactive or broad-spectrum retaliation.
Phase II & III: Information Warfare and Strategic Consolidation
The second phase targeted the ideological backbone of terrorism i.e. its propaganda networks. The MEA and Information Warfare Division collaborated with global platforms to dismantle hundreds of online cells inciting violence and spreading disinformation. In parallel, India launched a diplomatic blitz, with all-party delegations (notably led by Shashi Tharoor) framing terrorism as a cultural assault “sindoor ka badla khoon” and a global moral issue. Phase III combined ground gains by deploying Integrated Battle Groups along the LoC to thwart retaliatory incursions. Using intelligence reports and evidence supported by QUAD, India urged its allies to diplomatically isolate Pakistan at the same time. New Delhi strengthened its position as a net security provider in the Indo-Pacific by redefining cross-border terrorism as a breach of international norms rather than just a bilateral dispute at the UN and in world capitals.
Gendered Terrorism: The Battle Over India’s Daughters
One of the most chilling aspects that has emerged in the aftermath of Operation Sindoor is the targeted sexualized violence used by militant groups, not as a side effect of terror, but as a deliberate psychological and ideological weapon.
Among the 37 hostages recovered in the Shopian safe house was the daughter of India’s Foreign Secretary, brutalized in captivity, an image that shook the nation. The evidence of Dalit and tribal women from Rajouri and Kupwara, many of whom had been trafficked, brainwashed and put in danger of repeated violence were equally unsettling.
The irony becomes glaring when contrasted to the Indian government which frequently places women's empowerment as a key constituent of its governance model. India has shown a proud history of gender advancement, from the Beti Bachao Beti Padhao campaigns to the appointment of women to combat positions in the army and air force. But Operation Sindoor revealed the blind spot in this narrative when violence against women is used not only as a tool of control but also a message of defiance to the state itself.
The terrorist organizations view women's bodies as battlefields where assault turns into a propaganda and military tactic. They are primarily propagandized in radical Islamist and patriarchal ideologies. India's current challenge is to include gender-sensitive responses into its counterterrorism policy, from psychological support and victim rehabilitation to the establishment of specialized forces with training in trauma-informed interrogation and hostage recovery.
A New Doctrine Takes Shape
Operation Sindoor’s success is more than just a tactical victory. It mirrors India’s rise as an assertive actor ready to defend its citizens beyond its own borders. Analysts note that where once India shilly-shallied to risk escalation dreading international denunciation or the possibility of nuclear retaliation, the current leadership is indicating a “no sanctuary” policy for terrorists, irrespective of location. This embodies a clear break from the 2001–02 standoff when India amassed troops after the Parliament attack but ultimately chose restraint to evade a larger conflict. Similarly, lessons from the Balakot strike in 2019 are palpable here that is a focus on exact intelligence, swift decision-making, and carefully precise objectives to avoid full-scale hostilities. The fact that India coordinated closely with the United States sharing real-time drone footage, encrypted intercept data, and threat calculations also shows an expanding strategic unity in the global fight against terrorism.
Challenges and Forward Outlook
Even if Operation Sindoor was initially successful, there are still a number of challenges. First, a simultaneous political approach to address local complaints is necessary for long-term stabilization in Jammu and Kashmir, which calls for more than just military intervention. Critics argue that kinetic actions without meaningful discussion run the risk of inciting unhappy teenagers to become even more militant. Second, there may be ongoing tension along the Line of Control due to Pakistan's potential for retaliatory acts, including diplomatic posturing at international forums or secretly supporting sleeper cells on Indian soil. India is still in the early phases of its diplomatic isolation of Pakistan and Islamabad's close relations with friendly nations like China and certain Gulf states could weaken New Delhi's narrative. Third, as India expands cooperation with the Quad and Western intelligence agencies, there is a risk of over-reliance on external platforms. India must continue forming robust indigenous surveillance, cybersecurity, and counter radicalization abilities to develop “atmanirbharta”. Nevertheless, the focus on integrated mission command, cutting-edge drones, and strategic communications in Operation Sindoor provides a blueprint for future crusades where rapidity, accuracy, and narrative control are supreme.
Learning from the Past, Building for the Future
Bygone are the days when India adopted a predominantly defensive posture waiting for attacks and then responding through diplomatic protests, and localized law-and-order measures. Operation Sindoor signifies a standard shift which combined precision intelligence-based strikes with a strong narrative offensive to expose and isolate state sponsors of terror. Moving forward, India must set this doctrine within a larger regional and global framework. Partnerships through groupings like the Quad, I2U2 and Gulf partnerships should prioritize intelligence-sharing, counter-terror financing, urban warfare training and early-warning systems. It will be crucial on a national level to fortify the NIA, make investments in predictive technologies driven by AI and establish community policing in areas that are at risk. When combined, these actions can produce a strong, proactive and democratic counterterrorism strategy that protects civilian lives while frightening enemies.
Strategic Storytelling
Operation Sindoor also saw the deployment of India's soft power machinery in ways never before observed. The Ministry of External Affairs sent diplomatic dossiers containing video evidence, confessions and terror-link charts to 28 embassies within 48 hours of the raid. Indian missions overseas launched #IndiaStrikesBack social media campaigns in order to prevent hostile propaganda from taking over the world narrative,
The image of a bloodied schoolgirl who was saved from the Shopian compound was shown by the Indian envoy to the UN in a dramatic moment, serving as a stark reminder that terrorism is a real-life form of violence against women, children and civilians.
With this, India enters a new era of tactical communication in which it not only combats terrorism but also inspires the conversation about it worldwide. For decades, Pakistan had weaponized global sympathy through narratives of "freedom struggle" in Kashmir. Operation Sindoor shattered that façade portraying terror as a transnational, misogynistic and anti-civilian menace.
The Narrative Wars Today
Operation Sindoor took place in the midst of a heated public diplomacy climate where media, sport and culture have all turned into battlegrounds. The 2025 Asia Cup match between India and Pakistan, which was played in Dubai, turned into a flashpoint. Months after the Pahalgam attack, the match carried political overtones, sparked boycott calls and descended into a post-match "no-handshake" controversy, magnifying diplomatic tensions into social media warfare and sports diplomacy. The match proceeded despite the BCCI and government's calculations that India would only refrain from bilateral visits while continuing to play in multilateral tournaments. However, the optics, which included vocal public boycott movements and a refusal to engage in customary courtesies, showed how India is using non-military levers to signal its red lines.
Other than stadiums, India has pushed the narrative on multiple diplomatic avenues such as keeping terror financing on the global agenda, leveraging forums to isolate state sponsors and exposing online propaganda networks that sustain recruitment and radicalisation. To combat AI-amplified disinformation and deepfakes that can quickly erode public support and international sympathy, cyber and information-operations units are now considered essential to counterterrorism.
Conclusion
Bygone are the days when India absorbed one terror attack after another with diplomatic stoicism. Operation Sindoor is not just about revenge, it is about redefinition. Redefining the scope of action, the nature of warfare, the place of women in both strategy and suffering, and the state’s responsibility to not just protect borders, but heal wounds and reclaim its moral authority. India's new doctrine reads: no normalization without accountability, no sanctuary for terrorism, whether on the battlefield, in cricket, or at the United Nations.
The operation is also a reminder that while counter-terrorism begins with a trigger pull, it must end with reconstruction OF NARRATIVES, OF DIGNITY, OF NATIONAL UNITY.
By Kartik Rajbhar
Kartik Rajbhar is enrolled in 4th year with the Department of Political Science at Hindu College, University of Delhi. He is passionate about governance, diplomacy and international relations. Actively engaged in political discourse, he blends academic curiosity with a keen focus on policy analysis. A history buff too at heart, he draws inspiration from the past to decode the present.
References:
https://visionias.in/current-affairs/news-today/2025-05-08/security/india-launches-operation-sindoor
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