BRICS Counter-Terrorism Action Plan, Objectives, Features and Significance

The BRICS Counter-Terrorism Action Plan was adopted in 2021 under India’s BRICS Chairship and endorsed at the 13th BRICS Summit on 9 September 2021. It provides a framework for strengthening cooperation among BRICS countries to prevent and combat terrorism through information sharing, capacity building and coordinated action. The plan reflects the shared commitment of member countries to enhance international cooperation and contribute to a safer and more secure global environment. 

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• BRICS has emerged as an important platform for cooperation among major emerging economies, particularly on economic policy and global governance.
• BRICS has also become an important platform for advancing the interests and aspirations of the Global South through continued dialogue and cooperation.
• Its areas of cooperation cover development, finance, technology, trade and people-to-people exchanges.
• The grouping reflects the growing economic importance and global aspirations of emerging economies and provides members an opportunity to share experiences and address common challenges.
• Under its 2026 Presidency, India is hosting the 18th BRICS Summit in New Delhi on 12-13 September 2026.
• The 2026 Summit will mark India’s fourth Chairship of BRICS. India’s Chairship is guided by the theme “Building for Resilience, Innovation, Cooperation and Sustainability.”
• The theme focuses on strengthening BRICS’ existing achievements and improving its institutional effectiveness, while placing greater emphasis on development, sustainability and innovation.
• India also aims to highlight the aspirations of the Global South and strengthen BRICS as a constructive and solutions-oriented forum.
• BRICS currently comprises 11 countries: Brazil, China, Egypt, Ethiopia, India, Indonesia, Iran, Russia, Saudi Arabia, South Africa and the UAE.
• Collectively, these countries account for around 49.5% of the global population, 40% of global GDP and 26% of global trade, highlighting the grouping’s significant demographic and economic weight.
• The expanded membership has increased BRICS’ geographical reach across Asia, Africa, the Middle East and Latin America.

History of Adoption of the BRICS Counter-Terrorism Action Plan

• At the 12th BRICS Summit in November 2020, BRICS leaders endorsed the BRICS Counter-Terrorism Strategy, which provided the broader framework for counter-terrorism cooperation.
• The Strategy envisaged the preparation of a Plan of Action with specific measures for its effective implementation.
• Accordingly, the 6th BRICS Counter-Terrorism Working Group (CTWG), held virtually on 28-29 July 2021 under India’s Chairship, finalized the BRICS Counter-Terrorism Action Plan.
• The Action Plan was adopted at the BRICS National Security Advisers’ meeting on 24 August 2021 and subsequently endorsed at the 13th BRICS Summit on 9 September 2021.
• It seeks to strengthen result-oriented cooperation among BRICS countries in areas such as terrorism financing, radicalisation, misuse of the internet, border control, information sharing, capacity building and international and regional cooperation.

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BRICS Counter-Terrorism Action Plan Key Objectives

The BRICS Counter-Terrorism Action Plan provides a framework for strengthening cooperation among BRICS countries to deal with terrorism and related security threats. It was prepared under the BRICS Counter-Terrorism Strategy, endorsed by BRICS Leaders in 2020. The plan focuses on coordinated action, information sharing, capacity building and cooperation with international organisations.

• Strengthen counter-terrorism cooperation: The Action Plan aims to improve cooperation among BRICS countries to understand, identify and respond collectively to both existing and emerging terrorist threats.
• Improve coordination among agencies: It promotes closer cooperation between the intelligence, law enforcement and security agencies of BRICS countries for more effective counter-terrorism action.
• Combat terrorism in all forms: BRICS countries reaffirm their commitment to oppose terrorism in all its forms and manifestations, irrespective of who carries it out, where it occurs or what motive is given for it.
• Prevent the use of territory by terrorists: Countries are encouraged to prevent their territories from being used for establishing terrorist bases or planning and carrying out attacks against other countries or their citizens.
• Counter radicalisation and extremism: The plan focuses on preventing the spread of extremist ideas, terrorist propaganda and radicalisation, particularly through the internet and social media.
• Stop terrorist financing: It seeks stronger cooperation to identify illegal financial channels, prevent the movement of terrorist funds and freeze terrorist assets.
• Prevent terrorist travel: The Action Plan aims to restrict the movement of terrorists through stronger immigration controls, border management and information exchange.
• Build counter-terrorism capacity: Training, expert meetings, joint exercises, workshops, research and sharing of best practices are encouraged to improve the capabilities of security and law enforcement agencies.
• Address conditions conducive to terrorism: BRICS countries also seek to exchange best practices related to education, socio-economic development, employment, skill development, poverty reduction and rehabilitation, while recognising that such conditions cannot justify terrorism.

Major Features of the BRICS Counter-Terrorism Action Plan

The Action Plan covers multiple areas, ranging from combating terrorism and radicalisation to terrorist financing, border security, online threats and intelligence sharing.

• Combating terrorism: BRICS countries will strengthen their national legal frameworks in line with relevant UN resolutions and improve cooperation in the investigation and prosecution of terrorists and crimes linked to terrorism.
• Preventing radicalisation: The plan promotes cooperation against terrorist narratives, propaganda, recruitment and radicalisation. Special attention is given to the misuse of the internet and social media for influencing young people.
• Countering online terrorist threats: BRICS members will share information and best practices on terrorist use of social media, dark web, encrypted services, anonymity tools and other ICT platforms. They will also strengthen cyber and digital forensic capabilities.
• Countering terrorism financing: Cooperation will focus on preventing illegal movement of funds, freezing terrorist assets and identifying sources of financing. This includes suspicious hawala operators, travel agencies and money changers, as well as newer methods such as online crowdfunding, digital payments, dark web and cryptocurrencies.
• Preventing terrorist travel: Countries will exchange best practices on immigration controls and the use of Advance Passenger Information (API) and Passenger Name Record (PNR) systems to identify and disrupt terrorist movement.
• Strengthening border management: The plan calls for stronger border and customs controls to prevent the movement of terrorists and detect activities such as trafficking in persons, illicit trade in natural resources, wildlife trafficking and movement of materials that may be used for terrorist purposes.
• Capacity building: BRICS countries will conduct counter-terrorism training, joint exercises and expertise-sharing programmes. Training will also cover digital evidence, cyber attacks, dark web investigations and encrypted terrorist communications.
• Protecting soft targets: The plan supports the development of good practices for protecting religious centres, public places and other high-footfall locations from terrorist attacks.
• Information and intelligence sharing: BRICS countries will strengthen mechanisms to exchange intelligence related to terrorist organisations and individuals, including information on their movement, financial activities and assets.
• International and regional cooperation: The Action Plan supports cooperation through the United Nations, G20, INTERPOL and other regional and multilateral organisations. It also calls for early finalisation and adoption of the UN Comprehensive Convention on International Terrorism.
• Implementation mechanism: The BRICS Counter-Terrorism Working Group (CTWG) and its sub-groups will identify activities, prepare an annual activity calendar and review implementation. Each BRICS country will also designate a nodal agency and focal points, with implementation carried out according to national legal frameworks.

Challenges in Implementing the BRICS Counter-Terrorism Action Plan

• Different legal frameworks: BRICS countries have different national laws and legal systems. Since implementation has to follow each country’s legal framework, applying common measures can be challenging.
• Different approaches to terrorism: Member countries may have different national priorities and approaches towards terrorism, extremism and security issues. This can sometimes make coordinated action difficult.
• Cross-border nature of terrorism: Terrorist organisations can operate across national boundaries. This makes cooperation on intelligence, investigation, prosecution, terrorist movement and financial flows particularly important.
• Changing online threats: Terrorist groups increasingly use social media, encrypted platforms, dark web networks and emerging technologies for propaganda, recruitment and radicalisation. Keeping pace with these methods requires continuous technological and institutional improvement.
• Complex terrorism financing: Terrorist organisations can use several channels to raise and transfer funds, including illegal trade, digital payments, crowdfunding and cryptocurrencies. Tracking these changing financial methods can be difficult.
• Coordination among agencies: Effective implementation requires regular coordination between intelligence, law enforcement, security, immigration, customs and financial authorities across BRICS countries.
• Implementation at the national level: The Action Plan depends on designated national agencies and focal points for implementation. Differences in institutional capacity and national priorities may affect how effectively individual measures are carried out.

BRICS Counter-Terrorism Action Plan Significance

• Promotes result-oriented cooperation: The Action Plan converts the broad objectives of the BRICS Counter-Terrorism Strategy 2020 into specific areas and activities for cooperation among member countries.
• Creates a common framework: It provides a structured approach for BRICS countries to work together against terrorism, radicalisation, terrorist financing, cyber threats and terrorist movement.
• Improves intelligence sharing: Greater exchange of information and best practices can help countries identify terrorist organisations, track their activities and respond to threats more effectively.
• Strengthens border security: Cooperation on immigration controls, API and PNR systems, customs and border management can help prevent the movement of terrorists across countries.
• Addresses emerging forms of terrorism: The focus on online propaganda, radicalisation, encrypted communication, dark web activities, digital payments and cryptocurrencies makes the Action Plan relevant to changing terrorist threats.
• Strengthens institutional capacity: Joint training, exercises, research, expert meetings and sharing of case studies can improve the capabilities of security, intelligence and law enforcement agencies.
• Protects vulnerable public spaces: The focus on soft targets, including religious centres and high-footfall public places, supports preventive security measures against terrorist attacks.
• Supports a comprehensive approach: The Action Plan combines security measures with efforts to promote social resilience and address conditions conducive to terrorism through education, socio-economic development, employment, skill development, poverty reduction and rehabilitation.

India’s Measures to Counter Terrorism

• Unlawful Activities (Prevention) Act (UAPA), 1967: The UAPA is a key legal framework for dealing with terrorism and unlawful activities. It provides for the designation of terrorist organisations and individuals and measures for dealing with terrorist activities and related assets.
• National Investigation Agency (NIA): Established under the NIA Act, 2008, the NIA is India’s premier central agency for investigating and prosecuting scheduled offences, including terrorism-related cases and terrorist financing.
• Other Legal Measures: Laws such as the Prevention of Money Laundering Act (PMLA) and relevant provisions of the Bharatiya Nyaya Sanhita (BNS) support action against terrorist financing and related criminal activities.
• Multi-Agency Centre (MAC): Operating under the Intelligence Bureau, MAC facilitates real-time intelligence sharing and coordination among central and state security agencies to strengthen counter-terrorism efforts.
• National Intelligence Grid (NATGRID): NATGRID connects approved security and law-enforcement agencies with designated data providers to improve intelligence gathering and counter-terrorism capabilities.
• National Security Guard (NSG): The NSG is the nodal national counter-terror force under the Ministry of Home Affairs for assisting state forces during major terror attacks, along with supporting capacity building.
• CCTNS and State ATS: The Crime and Criminal Tracking Network & Systems (CCTNS) strengthens crime-data sharing, while State Anti-Terrorism Squads (ATS) investigate and respond to terrorism-related threats at the state level.
• Border Security Measures: India uses integrated border management, surveillance systems and technological tools to strengthen border security and prevent infiltration and cross-border movement linked to terrorism.
• Whole-of-Government Approach: Counter-terrorism involves coordination among central agencies, state police, CAPFs, intelligence agencies and specialised forces, enabling faster intelligence sharing and coordinated responses.
• PRAHAAR – National Counter-Terrorism Policy and Strategy: Launched in February 2026, PRAHAAR provides India’s first comprehensive national framework for preventing and responding to terrorism and radicalisation. It emphasises a whole-of-government and whole-of-society approach, along with human rights and rule of law.
• No Money for Terror (NMFT): India hosted the 3rd Ministerial Conference on Countering Financing of Terrorism in New Delhi in November 2022 and has continued to participate in the NMFT process to strengthen international cooperation against terrorist financing.
• FATF Cooperation: India has been a FATF member since 25 June 2010 and participates in international efforts to strengthen standards against money laundering and terrorist financing.
• International Cooperation and CCIT: India works through the United Nations, FATF, INTERPOL, SCO and other international platforms to strengthen counter-terrorism cooperation. It also continues to support the adoption of the Comprehensive Convention on International Terrorism (CCIT), which India proposed at the UN in 1996.

International Efforts to Counter Terrorism

The international community has developed several global and regional mechanisms to prevent terrorism, disrupt terrorist financing, strengthen national capacities and promote cooperation among countries. 

• United Nations Global Counter-Terrorism Strategy (GCTS): Adopted by the UN General Assembly in 2006, it provides a common framework for international counter-terrorism efforts based on four pillars: addressing conditions conducive to terrorism, preventing and combating terrorism, building state capacity and protecting human rights and the rule of law.
• UN Office of Counter-Terrorism (UNOCT): Established in 2017, it coordinates UN counter-terrorism efforts and supports Member States in implementing the Global Counter-Terrorism Strategy.
• UN Security Council Counter-Terrorism Committee (CTC): Established to monitor the implementation of UNSC Resolution 1373 (2001) and strengthen international cooperation against terrorism.
• UN Countering Terrorist Travel Programme: Helps countries strengthen their ability to detect and prevent terrorist travel through the effective use of Advance Passenger Information (API), Passenger Name Record (PNR) and international databases.
• Global Counterterrorism Forum (GCTF): An informal multilateral platform that promotes the sharing of expertise, good practices and capacity-building approaches among countries to counter terrorism.
• Financial Action Task Force (FATF): An inter-governmental body that sets global standards to combat money laundering and terrorist financing and helps countries strengthen measures against illicit financial flows.
• SCO Regional Anti-Terrorist Structure (RATS): Promotes cooperation among SCO members to combat terrorism, separatism and extremism, including through information sharing and coordination.
• Global Terrorism Index (GTI): Published by the Institute for Economics & Peace (IEP), it measures the global impact of terrorism and provides data on terrorism trends to support policy analysis.
• Comprehensive Convention on International Terrorism (CCIT): Proposed by India in 1996, it seeks to create a comprehensive international legal framework to deal with terrorism, including issues related to terrorist financing and safe havens. The convention is yet to be adopted.