Counterterrorism and the Limits of SCO

Image Source: VCG/Getty Images

On 26 June 2025, the 22nd Shanghai Cooperation Organisation (SCO) Defence Ministers meeting took place in Qingdao, China, involving nine member states, three observer states, and 14 dialogue partners. India’s Defence Minister Rajnath Singh declined to sign the joint declaration because it failed to mention the heinous terror attack in Pahalgam carried out by the Pakistani state. Instead, the declaration included references to insurgent activities in Balochistan, which could have weakened New Delhi’s stance on terrorism and regional security in the SCO region. Although security and counter-terrorism have been the primary focus of this regional group since the formation of the Shanghai Five in 1996, mounting differences in these areas over the recent years have eroded the significance of the SCO’s ‘Shanghai Spirit’. Additionally, some member countries have covertly supported terror activities, transforming the region into an expanding hub for terrorism.

The declaration included references to insurgent activities in Balochistan, which could have weakened New Delhi’s stance on terrorism and regional security in the SCO region.

Counterterrorism and the SCO

Soon after the Taliban seized power in Afghanistan in 1996, the Shanghai Five concentrated on fighting terrorism, extremism, and separatism, which led to these priorities being formalised in Article 1 of the SCO Charter. In 2001, the Shanghai Five evolved into the SCO with the addition of Uzbekistan. At the opening ceremony of this multilateral organisation, President Nursultan Nazarbayev of Kazakhstan called Afghanistan ‘the cradle of terrorism, separatism and extremism’, given the increased terror threats to the region. The SCO’s ant-terrorism policy was institutionalised and consolidated within the Executive Committee of the Regional Anti-Terrorist Structure (RATS), one of the SCO’s two permanent bodies. RATS is tasked not only to address terrorism but also to support member countries by training security personnel for planning and conducting anti-terror operations and gathering intelligence on terror groups.

Before SCO expanded its membership, RATS was effective in its counterterrorism efforts. From 2011 to 2015, it thwarted 20 terrorist attacks, destroyed 440 training camps, arrested over 2,700 extremists from various groups, and eliminated 1,700 others. It recovered 450,000 ammunition articles, 50 tonnes of explosives, and created a platform for sharing information on terrorism, crime, and narcotics. Through RATS, member countries broaden their counterterrorism efforts to crack down on narcoterrorism, as drug smuggling emerged as a significant source of funding for anti-state activities and terror organisations in the region.

The growing divergence, China’s increasing influence, and covert support to shield Pakistan-sponsored terrorism have made the SCO region more vulnerable to terrorism and violence, despite New Delhi’s efforts to make the SCO a comprehensive and inclusive organisation, avoiding dominance by any single country.

India and Pakistan officially became full members of the SCO in 2017, following their observer status since 2005. New Delhi continues to strongly advocate anti-terrorism efforts within the grouping and highlight the issue of state-sponsored terrorism and its implications on regional peace and security. Conversely, Pakistan has used state-sponsored terrorism as a tool of foreign policy against neighbouring rivals such as Afghanistan, India, and Iran, often distinguishing terrorists as either ‘good’ or ‘bad’. The growing divergence, China’s increasing influence, and covert support to shield Pakistan-sponsored terrorism have made the SCO region more vulnerable to terrorism and violence, despite New Delhi’s efforts to make the SCO a comprehensive and inclusive organisation, avoiding dominance by any single country. However, India promoted increased cooperation among member countries across national security, culture, and education. Additionally, it strongly supported using English as a primary language, since only Russian and Mandarin are currently being employed for maintaining the SCO’s terror database.

Divergence and terrorism

The divergence and covert support for state-sponsored terrorism by specific SCO countries have made the region more vulnerable to increased terrorist attacks and geopolitical conflicts. Terror groups such as Islamic State Khorasan Province (ISKP) have expanded their influence in the SCO region following the Taliban’s rise to power in Afghanistan. They have employed various recruitment methods and carried out attacks, with an estimated strength of approximately 1,500 to 4,000 fighters. In January 2024, an ISKP suicide attack resulted in 92 deaths and 102 injuries. Similarly, in March 2024, Russia experienced one of its deadliest terror attacks in decades when several gunmen stormed Moscow’s Crocus City Hall, resulting in over 115 deaths and more than 187 injuries.

Besides ISKP, other Pakistan-sponsored terror groups have also carried out several attacks on Iran as well as India. The Jaish al-Adl, a Pakistan-backed terrorist organisation, has been involved in militant activities within Iran for over a decade, carrying out numerous attacks, including an incident in December 2023 where they attacked a police station in the city of Rask in Sistan and Balochistan Province, killing 11 security personnel. Similarly, the heinous terror attack in Pahalgam of Jammu and Kashmir by The Resistance Front (TRF)—a proxy group linked to Lashkar-e-Taiba (LeT)—claimed the lives of 26 innocent tourists and left several others injured.

Terror groups such as Islamic State Khorasan Province (ISKP) have expanded their influence in the SCO region following the Taliban’s rise to power in Afghanistan.

The increasing covert support for Pakistan’s state-sponsored terrorism by Beijing has not only made the SCO region more vulnerable to heightened terror activities but also compelled countries to carry out pre-emptive actions and raids against terrorists and their infrastructure in neighbouring nations. This, in turn, has made the region more susceptible to conflicts. The terror attack at Rask prompted Iran to conduct strikes into Pakistani territory, targeting the bases and launchpads of Jaish al-Adl. Concurrently, New Delhi initiated Operation Sindoor after the Pahalgam attack to dismantle terror infrastructure deep within Pakistan and Pakistan-occupied Kashmir, and the operation was only paused after Pakistan pleaded for a ceasefire.

Conclusion

The SCO is officially aimed at promoting peace and regional security against terrorism. However, China’s growing influence and Russia’s diminishing power have turned the organisation into a tool that aligns with Beijing’s strategic goals. This shift has included covert support for certain terrorist groups that target India.. The SCO’s consequent erosion has heightened the group’s vulnerability to disagreements, revealing its internal divides. The SCO lacks tangible enforcement and effective implementation of the counterterrorism aims outlined in its charter. The ongoing struggle for dominance within the grouping has rendered the organisation ineffective in ensuring that the SCO region remains safe, secure, peaceful, and free from terrorism.

Ayjaz Wani (PhD) is a Fellow in the Strategic Studies Programme at the Observer Research Foundation

Ira Kulkarni is a Research Intern in the Strategic Studies Programme, Observer Research Foundation