BESA Center Perspectives Paper No. 2,356, December 1, 2025
EXECUTIVE SUMMARY: For nearly a decade, India has been shedding the vocabulary of strategic restraint. The cycle of responses to major Pakistan-based terrorist attacks, including Uri in 2016, Balakot in 2019, and Pahalgam in 2025, made clear that predictable retaliation had not deterred cross-border terrorism. In fact, it enabled it. Restraint, once thought to be stabilizing, had become strategically dangerous. Predictability gave militant groups the space and time to prepare for new attacks. Eventually, Delhi’s belief that terrorism could be contained below the threshold of interstate conflict collapsed. As was made clear in Operation Sindoor, India has crossed a doctrinal threshold. It no longer responds to terrorism with calibrated warnings or waits for international partners to validate its choices. It is building a new operating logic rooted in coercive clarity and a willingness to act first when its citizens are threatened.
Indian strategic restraint was designed to prevent escalation with Pakistan. In practice, it did the opposite. Terror groups backed by Pakistan’s security agencies exploited the firebreak between terrorism and state aggression on the assumption that India would avoid decisive retaliation or cross-border action. Limited responses produced predictable patterns, and predictability invited more violence.
India has replaced this framework with a doctrine of compellence. Major attacks are now treated as acts of war. This principle was made explicit during Operation Sindoor, when the Prime Minister announced that major terrorist attacks would be answered as acts of war rather than treated as matters for law enforcement. The government no longer waits for lengthy attribution cycles or international pressure before acting. Pre-emption is considered a sovereign right. During Operation Sindoor, India struck early and deep, using long-range fire, drone swarms, loitering munitions, and real-time fused intelligence. The operation broke the old template and signaled a permanent doctrinal change.
The end of strategic restraint
This evolution is institutional, not episodic. Indian deterrence is now pattern-based rather than event-based, signaling that retaliation is now to be expected rather than debated. Public expectations help shape policy, and citizens expect retaliation rather than investigation. The political reality, in which national strategy is tied to public sentiment, narrows the space for restraint.
The shift extends beyond military action. During the 2025 ceasefire discussions with Pakistan, Delhi rejected all external mediation. That was not a negotiating tactic. It was the expression of a new doctrine. India now treats crises with Pakistan as regionally internal and prefers direct communication between the Directors General of Military Operations, the top operational military officers on each side. Outside involvement is kept at a minimum to preserve freedom of maneuver and crisis ownership.
Treaties under conditional legitimacy
India’s approach to treaties has changed as well, reflecting the same shift toward coercive clarity. The suspension of the Indus Waters Treaty, a 1960 agreement that divided the rivers of the Indus basin and survived multiple wars, marked the first time a resource-sharing treaty was used as coercive leverage in South Asia. The shift echoed earlier remarks by Indian leaders that blood and water cannot flow together, a formulation now reflected in policy rather than rhetoric. For decades, arrangements like this were treated as stabilizing anchors meant to insulate both countries from conflict. India no longer accepts that premise. Water, airspace, and border-management agreements now survive only if they reinforce India’s security narrative.
The same logic applies to the Shimla Agreement of 1972, which committed India and Pakistan to resolve disputes bilaterally. Once a cornerstone of India’s diplomatic posture, it now carries less weight because it places more constraints on India than on Pakistan.
India continues to declare a No First Use nuclear policy, but political leaders have introduced deliberate ambiguity about how that commitment should be interpreted in a rapidly changing threat environment. What was once a doctrine of assured retaliation is evolving toward assured punishment, a formulation that narrows the room for adversary miscalculation while maintaining rhetorical restraint. Precision conventional strikes now operate close to Pakistan’s nuclear command-and-control infrastructure, compressing the conventional–nuclear firebreak. New capabilities such as MIRVs (canisterized missiles kept at higher readiness) and routine SSBN patrols show that India’s deterrent is no longer merely symbolic. It is becoming a readiness-oriented system in which technology and doctrine are evolving together.
India has also redefined its counterterrorism doctrine. Proxy groups are treated as instruments of hostile state policy, not as deniable actors operating in a grey zone. Zero tolerance refers not only to the occurrence of terrorism but to the continued existence of the networks that enable it. India now views the broader ecosystem surrounding terrorist groups as a legitimate set of targets.
A final dimension is often overlooked. China is the silent second audience for India’s choices. Signals meant for Pakistan carry an implied message for Beijing. India’s interception of Chinese-origin PL-15 air-to-air missiles and successful defeat of Pakistan’s Chinese-supplied air defense systems during Operation Sindoor provided valuable intelligence on Chinese weapons design and vulnerabilities. India’s new deterrence logic is built for a two-front environment in which actions in one direction have consequences in the other.
What emerges is a picture of a state transforming under fire. India is not becoming reckless; it is becoming coherent. It is aligning doctrine, public expectations, defense industrial capacity, and geopolitical messaging around a single principle. Security must be achieved by India, not granted through outside mediation or constrained by outdated assumptions.
Despite these shifts, several structural constraints remain unchanged. India continues to face significant intelligence gaps, limited real-time ISR coverage along key sectors, and persistent bureaucratic friction in inter-service coordination. The political leadership remains sensitive to the costs of prolonged conflict, and the military is deeply cautious about simultaneous commitments on two fronts. These enduring limitations serve as a crucial reminder that doctrinal evolution does not eliminate operational friction.
Not all members of India’s strategic community concur with this trajectory. Several scholars argue that a posture centered on rapid retaliation and pre-emption may, in practice, erode crisis stability rather than strengthen it, particularly without sustained reforms in civil-military coordination and decision-making. Moreover, Pakistan’s domestic fragility, decentralized proxy networks, and continued reliance on nuclear signaling introduce significant uncertainty. These structural conditions suggest that India’s increasingly assertive doctrine will not necessarily yield predictable adversary behavior and may interact with Pakistani vulnerabilities in destabilizing ways.
A coherent but high-stakes doctrine
This shift is not without risks. A posture built on pre-emption and rapid retaliation compresses decision time on both sides, increasing the danger of misinterpretation or premature escalation. Pattern-based deterrence assumes intent can be accurately discerned, but intelligence failures or political pressure could easily prompt India to act on incomplete signals. The erosion of stabilizing agreements such as the Indus Waters Treaty and the weakening of the Shimla framework remove guardrails that once shaped crisis behavior. Greater strategic autonomy gives India more room to maneuver, but also narrows the margin for error in a nuclearized environment.
There is also a diplomatic cost. India’s rejection of external mediation strengthens its claim to sovereign crisis management, but reduces the number of actors capable of de-escalating a crisis once it begins. Washington’s traditional stabilizing role will become more constrained, while Beijing may interpret India’s new doctrine through its own rivalry calculus, tightening the two-front dynamic India seeks to manage. Assertiveness delivers clarity, but can also prompt counter-moves that make South Asia more volatile, not less.
Implications for Israel
These shifts matter for Israel. India’s new deterrence posture of explicitly rejecting nuclear blackmail, collapsing the line between proxy terror and state responsibility, and demonstrating a willingness to strike early and with precision mirrors many of the principles Israel has relied on for decades. Both states face adversaries that use terrorism as a strategic tool under the umbrella of nuclear ambiguity. India’s performance in Sindoor, especially its defeat of Chinese-origin PL-15 missiles and HQ-9/P air defenses, provides operational insights that are directly relevant to Israel as Chinese technology expands across the Middle East. The emerging convergence is not rhetorical; it is doctrinal. India’s willingness to impose costs on an ecosystem that enables terrorism, and to do so without waiting for external validation, opens new avenues for Israel-India strategic coordination.
India has written a new playbook, and the world needs to pay attention.
Dr. Lauren Dagan Amos is a member of the Deborah Forum, a lecturer and a researcher in the Department of Political Science and the Security Studies Program at Bar-Ilan University. She specializes in Indian foreign policy.
John Spencer is Chair of War Studies at the Madison Policy Forum and Executive Director of the Urban Warfare Institute. He served 25 years as an infantry soldier, including two combat tours in Iraq. He is author of the book Connected Soldiers: Life, Leadership, and Social Connections in Modern War and coauthor of Understanding Urban Warfare.