National Security Doctrine in India Urgent Need  Introduction 

• In an era where India faces an array of multidimensional threats—from state-sponsored terrorism and cyber warfare to border incursions and grey-zone tactics—the absence of a formal National Security Doctrine (NSD) has become a critical gap in its defense strategy. 
• Despite being a nuclear power with one of the world’s largest and most capable militaries, India has yet to codify a comprehensive national security doctrine. As K. Subrahmanyam, the architect of India’s nuclear doctrine, once famously said, “No nation can pursue effective security policy without doctrinal clarity.” This statement is even more relevant today, as India faces growing security challenges that require strategic foresight and a unified approach.

India’s Security Landscape

• India’s position between two nuclear-armed adversaries—China and Pakistan—has placed it at the epicenter of constant security threats. From the Kargil War (1999) to the Uri Attack (2016), the Pulwama-Balakot Crisis (2019), and the Galwan Valley clash (2020), the country’s security challenges are both complex and ongoing. 
• Although India’s responses to these threats have been increasingly assertive and measured, the lack of a formally articulated National Security Doctrine limits its ability to formulate long-term strategies and anticipate future threats.

What is a National Security Doctrine?

• A National Security Doctrine (NSD) is a comprehensive and cohesive framework of guiding principles, strategic beliefs, and operational stances that determine how a country approaches its military, diplomatic, and internal security challenges. A well-crafted NSD offers several critical functions:
  • Blueprint for Defense and Foreign Policy: It establishes the foundation for military strategies and diplomatic relations.
  • Readiness for Modern Warfare: It prepares the nation for various forms of warfare, including asymmetric warfare and cyber threats.
  • Deterrence Communication: It conveys a clear message to adversaries about the consequences of aggression or provocation.
  • Confidence Building: It helps foster trust and assurance among citizens and allies alike, promoting national unity and solidarity.
• While India’s 2003 Nuclear Doctrine addresses the nation’s approach to nuclear deterrence, emphasizing “credible minimum deterrence” and a “No First Use” policy, it is limited in scope and does not address the full range of security threats India faces. 
• Without a broader National Security Doctrine, India’s responses to issues such as terrorism, cyber attacks, and grey-zone tactics lack a unified, coherent strategy.

Why India Needs a National Security Doctrine?

• Inadequate Civil-Military Integration: India currently lacks a unified command structure to coordinate between its military and civil authorities. While efforts like the Integrated Theatre Commands are underway, they are not yet fully operational. A comprehensive NSD would guide the integration of civil and military operations, facilitating a more synchronized approach to national security, similar to how the U.S. National Security Strategy (NSS) aligns defense and diplomatic actions.

• Institutional Coordination Gaps: Multiple agencies in India, such as defense, home ministry, intelligence agencies, and the MEA, often work in silos, which hampers effective decision-making and response times. A formal NSD would establish clear Command, Control, and Communication (C3) structures, ensuring better inter-agency coordination to handle complex security situations.

• Ambiguity in Nuclear Posture: While India’s 2003 Nuclear Doctrine outlines a No First Use (NFU) policy and emphasizes credible minimum deterrence, ambiguity remains about nuclear red lines. Remarks by Manohar Parrikar in 2016 questioning the No First Use policy sparked controversy. A revised doctrine would provide clarity on India’s nuclear stance, enhancing deterrence and strengthening India’s strategic position in the global security framework.

• Asymmetry in Strategic Signaling: China’s strategic approach is informed by Sun Tzu’s doctrine of “subduing the enemy without fighting.” India, however, lacks a cohesive strategic messaging framework. An effective National Security Doctrine would provide India with a comprehensive doctrine for strategic signaling, helping it project power and assert its interests globally, especially in the Indo-Pacific.

• Complex Geopolitical Neighborhood: India’s geographical position between two nuclear-armed adversaries—China and Pakistan—has always been a source of security challenges. As Kautilya’s Mandala Theory suggests, “the immediate neighbor will be your enemy.” Historical events such as the Doklam Standoff (2017) and the Galwan Valley clash (2020) underscore the volatility of India’s borders. A formal NSD would offer clarity on how to handle these ongoing regional security issues, helping India manage its response more effectively.

• Reactive vs. Proactive Security Posture: Historically, India’s security responses have been reactive—addressing threats only after incidents occur. For example, India’s military responses following incidents like the Uri Attack (2016) and Pulwama-Balakot Crisis (2019) were reactive. A National Security Doctrine would help shift India’s approach from reactive to proactive, enabling preventive measures, as exemplified by China’s preemptive security strategy under its doctrine of “Active Defence.”

• Terrorism and Asymmetric Warfare: India has faced cross-border terrorism and asymmetric warfare for decades. While actions like the Balakot Airstrike and surgical strikes have been carried out, terrorism remains a persistent challenge. An NSD would help India develop a coherent counter-terrorism strategy that includes preemptive retaliation, intelligence sharing, and international cooperation, focusing on a “massive but non-escalatory” response.

• Alignment of Foreign and Defence Policy: India’s foreign policy and defense policy often operate in silos, leading to mismatches in diplomatic strategy and military readiness. A National Security Doctrine would ensure that both policies work in tandem, similar to the Nixon-Kissinger model, where U.S. defense strategies were aligned with its diplomatic goals.

• Persistent Multidimensional Threats: India faces a combination of hybrid threats, including cyber-attacks, information warfare, cross-border terrorism, and territorial aggression, such as China’s salami-slicing tactics in Ladakh. A National Security Doctrine would provide preemptive clarity on how to address these multidimensional threats, ensuring that India remains ahead of emerging security challenges.

• Lack of Comprehensive Internal Security Vision: India’s internal security challenges, such as Left-wing extremism, communal violence, and insurgencies in regions like Jammu & Kashmir and the Northeast, are often addressed ad hoc. A formal NSD would integrate these diverse threats into a comprehensive internal security architecture, creating a unified approach to internal and external security threats.

Significance and Potential Impact of a National Security Doctrine

• Strengthening Deterrence and Diplomatic Leverage: A National Security Doctrine helps India send a clear message to its adversaries about its red lines and response thresholds. It enhances India’s deterrence capability, especially in nuclear posturing, and allows the country to wield diplomatic leverage more effectively, similar to the U.S. “Pivot to Asia” doctrine, which helped shape alliances in the Indo-Pacific.

• Driving Defence Reforms: The introduction of an NSD would provide a strategic framework for defense reforms, prioritizing areas like theatre commands, indigenization (Atmanirbhar Bharat), and cyber defense. It will also align defense budgeting with national security priorities, ensuring efficient allocation of resources for critical defense areas.

• Improved Defence Budgeting: An NSD would help prioritize defense expenditure, ensuring that funds are allocated in line with strategic goals, such as cybersecurity, mountain warfare, and drone warfare. The ₹6.2 lakh crore allocated for defense in the Union Budget 2024-25 can be more effectively utilized for long-term security objectives.

• Coherent Counter-Terrorism Strategy:A formalized  doctrine would strengthen counter-terrorism efforts, ensuring a coordinated response to insurgencies and terrorist attacks. This would also help in the intelligence-led policing and technological deployments in sensitive areas like J&K and the Northeast.

• Strategic Clarity: A National Security Doctrine provides long-term strategic clarity, enabling India to assess threats systematically, allocate resources effectively, and prioritize security initiatives. This clarity will also help align defense policies with India’s global aspirations, ensuring its security framework is adaptable to future geopolitical shifts.

• Predictable Global Partnerships: A National Security Doctrine would allow India’s global partners—such as the U.S., France, Japan, and Australia—to understand its strategic thinking and align their security frameworks accordingly. This is essential for strengthening regional alliances and participating in joint military exercises under platforms like the QUAD.

• Better Crisis Management: A codified National Security Doctrine would provide escalation ladders and decision matrices, enhancing India’s ability to respond swiftly and effectively in crises. For instance, the confusion that followed the 26/11 Mumbai attacks could have been minimized with a clear crisis management framework in place.

• Informed Public Debate: A published National Security Doctrine strengthens democratic accountability by providing citizens with a clear understanding of India’s defense and security strategies. It also counteracts misinformation and war hysteria, ensuring informed public discourse on security issues.

• Security Beyond Borders: Finally, an NSD would guide India’s defense diplomacy, focusing on areas like maritime domain awareness through the SAGAR policy and regional leadership. It would enable India to extend its influence in key regions, fostering a robust security presence beyond its borders.

• Enhanced Inter-Agency Coordination: By clearly delineating responsibilities, an NSD would foster synergy among India’s armed forces, intelligence agencies, space and cyber domains, and diplomatic institutions. This would lead to more efficient and unified responses to emerging threats, ensuring India is prepared for a wide range of security challenges.

Indian Initiatives and Global Collaborations

• India’s 2003 Nuclear Doctrine: India’s 2003 Nuclear Doctrine remains the only formal doctrinal articulation, emphasizing a policy of No First Use (NFU) and massive retaliation in the event of a nuclear attack. This doctrine has established India’s nuclear posture and serves as a cornerstone of its defense strategy.

• Defence Planning Committee (DPC): Set up in 2018, the Defence Planning Committee (DPC) was tasked with drafting India’s national security strategy. This initiative is a significant step toward developing a coherent and long-term defense policy. The DPC is expected to address critical gaps in India’s defense preparedness and create a more strategic approach to national security.

• Theatre Command Model: India is in the process of transitioning to an integrated theatre command structure, which will unify its defense capabilities under regional commands. This model aims to align military operations with national defense objectives and is expected to provide operational flexibility, efficiency, and enhanced coordination.

• National Cyber Security Strategy (NCSS): India’s National Cyber Security Strategy (NCSS) is a crucial initiative in response to the rising threats in the cyber domain. Although the draft has been prepared, it is still pending clearance. Once implemented, it will align with the broader goals of an NSD, ensuring a coordinated approach to India’s cybersecurity.

• QUAD Cooperation: India’s participation in the QUAD (Quadrilateral Security Dialogue) enhances the Indo-Pacific security framework. As a part of this collaboration, doctrinal clarity would further strengthen India’s defense and diplomatic position in the region, ensuring a more synchronized approach to regional security challenges.

• India-France Defence Cooperation: India and France have developed a roadmap for defense cooperation, which includes joint doctrine planning and naval cooperation. This partnership strengthens India’s military capabilities and aligns with its broader security strategy, reinforcing both nations’ commitment to regional stability.

• U.S. Basic Exchange and Cooperation Agreement (BECA): The Basic Exchange and Cooperation Agreement (BECA) between India and the U.S. facilitates real-time geospatial intelligence sharing for targeted military operations. This collaboration enhances India’s operational capabilities and strengthens its defense alliances, particularly in counterterrorism and regional security.

• Strategic Partnerships in the Indo-Pacific: India’s growing strategic partnerships in the Indo-Pacific, including frameworks like QUAD, I2U2, and the Indo-Pacific Oceans Initiative (IPOI), signal India’s intent to expand its influence in the region. These collaborations help build strategic depth and reinforce India’s role as a regional security provider.

Challenges in Framing a National Security Doctrine

• Civil-Military Divide: India has historically maintained a separation between political and military decision-making. Unlike the U.S. or Israel, where political and military leaders work closely to shape national security policy, India’s civil-military divide creates challenges in formulating and implementing a unified security strategy.

• Siloed Institutions: India’s defense, intelligence, and diplomatic institutions often operate in silos, without unified planning or execution. The absence of a cohesive structure for inter-agency coordination hampers India’s ability to respond to security challenges efficiently. A National Security Doctrine would help address this gap by integrating various institutions into a unified strategy.

• Political Reluctance and Lack of Consensus: One of the key challenges is political reluctance. A National Security Doctrine may constrain political options, and there is a fear that it could be misinterpreted as an aggressive stance. Moreover, there is a lack of consensus across ministries and stakeholders, compounded by a weak National Security Council (NSC), hindering effective coordination.

• Doctrinal Rigidity vs. Flexibility: A formal National Security Doctrine must balance rigid core principles with flexible tactical needs. While some aspects of national security, such as nuclear deterrence, require long-term consistency, other areas like cyber warfare and counterterrorism demand flexibility and adaptability to rapidly evolving threats.

• Technological Lag and Dependence: Rapid advancements in technology—such as artificial intelligence, drones, and hypersonic missiles—mean that security doctrines must be continuously updated. India’s dependence on imported defense technologies, such as jet engines and high-end semiconductors, undermines the country’s self-sufficiency and complicates the development of a robust and independent national security doctrine.

• Hybrid and Gray-Zone Warfare: The rise of hybrid warfare—which blends conventional, irregular, and cyber warfare—creates challenges for doctrinal responses. For example, the standoff at the LAC (Line of Actual Control) between India and China in 2020, marked by tensions but no direct military engagement, exemplifies the challenges posed by gray-zone warfare, where the lines between peace and war are increasingly blurred.

• Lack of Strategic Culture: As noted by George Tanham (RAND Corporation), India has historically lacked a long-term strategic culture, focusing more on immediate security concerns rather than long-term planning. The absence of a formal National Security Doctrine reflects this gap, hindering the development of a coherent, forward-looking security strategy.

• Absence of a National Security Strategy Document: Unlike the U.S. National Security Strategy, which is updated every four years, India lacks a declassified National Security Strategy document. This absence hinders transparency and public understanding of India’s long-term security goals, leaving critical gaps in strategic communication.

 Way Forward

• Publish an Unclassified Summary for Strategic Communication: To ensure transparency and foster public trust, India should publish an unclassified summary of its National Security Doctrine. An open document outlining India’s security priorities, red lines, and adversaries (such as China and Pakistan) would improve strategic communication both domestically and internationally. This initiative would strengthen India’s role in global defense diplomacy and help set clear expectations for its allies and adversaries. A prime example is NATO’s Strategic Concept (2022), which openly defines adversaries and sets the direction for collective defense.

• Legislate the National Security Doctrine through Parliament: Legislating the National Security Doctrine through India’s Parliament will grant it democratic legitimacy and ensure institutional permanence. By making the NSD a formal law, India can ensure its security framework remains intact and operational across successive governments. This step would also clarify the roles of various agencies, improve oversight, and enhance accountability. The Goldwater-Nichols Act (1986) in the U.S. reformed its defense command structure and helped align national defense planning with strategic priorities, creating a model India could follow.

• Institutionalize Strategic Education: Embedding strategic studies and national security thinking across various sectors—such as civil services, foreign services, police academies, and **military training—**is crucial for fostering a unified national security mindset. A structured education system will help create a pool of professionals who understand the strategic interests of the nation and contribute to effective decision-making. Israel’s National Security College, which trains senior officials in integrated security and foreign policy, is an example that India could emulate to improve strategic decision-making.

• Integrate National Security Doctrine with Defense Budgeting and R&D Prioritization: India’s defense budget (₹6.2 lakh crore for FY 2024-25) should align directly with the country’s National Security Doctrine to ensure strategic priorities are adequately funded. The NSD should guide capital procurement, research and development (R&D) efforts, and key initiatives such as DRDO, iDEX, and DPSUs. By embedding strategic defense needs into budgetary allocations, India can avoid ad-hoc funding and ensure resources are directed towards cybersecurity, missile defense, and space capabilities. The U.S. Quadrennial Defense Review (QDR) model aligns defense strategies with budget cycles, ensuring a coherent approach to capability development.

• Embed Cybersecurity and AI in the Doctrine: With the rise of cyber warfare and AI-driven threats, it is critical that India’s National Security Doctrine addresses next-generation security challenges. Cybersecurity, AI-driven disinformation, and the sabotage of digital infrastructure must be explicitly incorporated into India’s security framework. These threats are particularly relevant in the hybrid warfare context, where adversaries employ non-traditional tactics like cyberattacks, economic espionage, and information warfare. NATO’s Cyber Defence Centre offers a model for addressing these evolving threats within a national security strategy.

• Link Foreign Policy with National Security Doctrine: India’s foreign policy must be closely aligned with its National Security Doctrine to ensure a coherent and coordinated approach to global affairs. A strategic linkage between defense and diplomacy can help India strengthen its strategic partnerships and project its influence globally. By reinforcing this connection, India can leverage economic corridors, strategic partnerships, and global influence operations to achieve its security objectives. Frameworks like the Indo-Pacific Oceans Initiative (IPOI) and QUAD are natural fits for alignment with a National Security Doctrine, enhancing India’s role as a regional and global security provider.

• Institutionalize a Periodic National Security Strategy (NSS): A periodic National Security Strategy (NSS) is essential for regularly assessing evolving security threats and updating strategic priorities. By institutionalizing such a document, India ensures continuity in its security vision, even during political transitions. The Kargil Review Committee Report (1999) had already recommended the establishment of a periodic NSS to guide India’s national security planning, yet India has yet to formally adopt such a strategy. A regularly updated NSS would align defense, foreign policy, and intelligence strategies, providing a long-term view that adapts to changing geopolitical conditions.

• Adopt a Tiered Doctrine Model: A tiered doctrinal model would allow India to develop specific sub-doctrines under a unified framework, addressing distinct sectors such as military defense, internal security, cybersecurity, intelligence, and diplomacy. This approach promotes inter-agency alignment, enabling better coordination among the armed forces, intelligence agencies, and diplomatic institutions. A tiered model allows for flexibility while maintaining a unified overarching strategy. The UK’s Integrated Review (2021) serves as a good example, blending military, diplomatic, and technological security into one cohesive strategy.