IGNOU FREE BPAG-171 Disaster Management Solved Guess Paper 2025

Q1. Define disaster and explain the major types of disasters.

A disaster is a sudden or progressive event that seriously disrupts the normal functioning of a community or society and causes widespread human, material, economic, or environmental losses which exceed the ability of the affected community to cope using its own resources. Disasters are not merely natural events; they become disasters when they interact with vulnerable human societies. Thus, disaster is the result of the combination of hazard, vulnerability, and insufficient coping capacity.

Disasters are broadly classified into natural disasters and human-made (man-made) disasters. Natural disasters occur due to natural forces and include earthquakes, floods, cyclones, droughts, landslides, volcanic eruptions, tsunamis, and forest fires. Earthquakes are sudden movements of the earth’s crust causing destruction of buildings and infrastructure. Floods result from excessive rainfall, river overflow, or dam failure and cause displacement, crop loss, and spread of diseases. Cyclones bring strong winds, heavy rain, storm surges, and large-scale destruction, especially in coastal areas. Droughts are slow-onset disasters caused by prolonged lack of rainfall, leading to crop failure, food scarcity, and migration.

Human-made disasters result from technological failures, industrial accidents, environmental pollution, war, terrorism, nuclear accidents, chemical leaks, and transportation accidents. Examples include industrial gas leaks, nuclear disasters, oil spills, building collapses, fires, and stampedes. These disasters are often caused by negligence, poor planning, unsafe practices, and lack of regulation.

Another important category is biological disasters, which include epidemics, pandemics, and outbreaks of diseases such as COVID-19, Ebola, and cholera. These disasters spread rapidly and affect public health, economy, and social life.

Disasters can also be classified as sudden-onset disasters like earthquakes and cyclones, and slow-onset disasters like droughts, desertification, and climate change. Sudden disasters cause immediate destruction, while slow disasters develop gradually but have long-term effects.

In modern times, disasters are increasing due to population growth, unplanned urbanization, industrialization, climate change, deforestation, and environmental degradation. Thus, disasters today are not only natural events but are deeply linked with human activities and development processes.

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Q2. Explain the concept of disaster management and its major phases.

Disaster management refers to the organized process of planning, coordinating, and implementing measures aimed at preventing disasters, reducing their impact, responding effectively when disasters occur, and recovering from their effects. It is a continuous and integrated process involving governments, institutions, communities, and individuals. The main objective of disaster management is to minimize loss of life, property, environment, and ensure quick recovery.

Disaster management operates through four major phases: Mitigation, Preparedness, Response, and Recovery.

The first phase is Mitigation, which includes measures taken to reduce or eliminate the impact of disasters before they occur. These measures aim at minimizing vulnerability and risk. Examples include disaster-resistant construction, flood embankments, early warning systems, land-use planning, building codes, environmental protection, and public awareness. Mitigation is the most cost-effective phase because prevention is always better than cure.

The second phase is Preparedness, which involves planning and readiness to respond effectively when a disaster strikes. It includes training of disaster response teams, mock drills, emergency evacuation plans, stockpiling of relief materials, establishment of emergency communication systems, and community awareness programmes. Preparedness ensures that people and institutions are ready to act quickly and efficiently when disaster occurs.

The third phase is Response, which refers to immediate actions taken during and after a disaster to save lives and reduce further damage. This includes search and rescue operations, first aid, medical services, evacuation, relief distribution, temporary shelters, provision of water and food, and maintaining law and order. Rapid and coordinated response is crucial to minimize casualties.

The fourth phase is Recovery, which focuses on restoring normal life after the disaster. It includes rehabilitation and reconstruction of houses, roads, schools, hospitals, and livelihood systems. Recovery also includes psychological support, compensation, restoration of services, and long-term development planning to reduce future risks.

These four phases are interconnected and continuous. Disaster management today emphasizes a shift from traditional relief-centric approach to a holistic risk reduction and preparedness-oriented approach where communities play a central role.

Q3. Discuss the institutional framework of disaster management in India.

India has developed a comprehensive institutional framework for disaster management through legislation, policies, and specialized institutions. The major turning point in India’s disaster management system was the Disaster Management Act, 2005, which laid down the legal and administrative structure for disaster preparedness, response, and mitigation at national, state, and district levels.

At the national level, the National Disaster Management Authority (NDMA) is the apex body responsible for disaster management policies, plans, and guidelines. It is chaired by the Prime Minister. NDMA formulates national disaster management plans, coordinates with ministries, and ensures implementation of mitigation and preparedness measures.

The National Executive Committee (NEC) assists NDMA in executing its policies and coordinates response during disasters. The National Disaster Response Force (NDRF) is a specialized force trained in disaster rescue and relief operations such as floods, earthquakes, cyclones, and chemical disasters. It plays a critical role during emergencies.

At the state level, every state has a State Disaster Management Authority (SDMA) headed by the Chief Minister. It prepares state-level disaster management plans and coordinates relief and rehabilitation efforts. The State Executive Committee (SEC) assists SDMA in implementation.

At the district level, the District Disaster Management Authority (DDMA) is headed by the District Collector or Magistrate. It is the most important authority for local planning, preparedness, and immediate response.

Apart from government bodies, many other institutions play crucial roles:

• Armed forces provide rescue, evacuation, and medical aid during severe disasters.

• Police, fire services, and civil defense support response operations.

• Panchayati Raj institutions and urban local bodies help in grassroots preparedness and relief.

• NGOs, voluntary organizations, and community groups play a major role in awareness, rescue, and rehabilitation.

• International agencies also provide technical and financial assistance during major disasters.

Thus, India’s disaster management framework is multi-level, multi-agency, and coordinated, aiming at a proactive, community-based, and risk-reduction approach.

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Q4. Examine the relationship between disaster and development.

The relationship between disaster and development is very close and complex. Development processes can both reduce and increase disaster risks, while disasters can significantly affect development outcomes. Poorly planned development often increases vulnerability and transforms natural hazards into large-scale disasters.

Unplanned urbanization, deforestation, mining, industrialization, and environmental degradation increase the likelihood and severity of disasters. For example, cutting forests increases the risk of floods and landslides. Construction in floodplains and coastal zones raises vulnerability to floods and cyclones. Industrial accidents occur due to unsafe technologies and lack of regulation. Thus, unsustainable development creates disasters.

At the same time, disasters reverse development gains. They destroy infrastructure, houses, farms, industries, schools, and hospitals. Poor people suffer the most because they lack savings, insurance, and safe housing. Disasters push people back into poverty, increase unemployment, disrupt education, and burden public finances. Governments are forced to divert development funds for relief and reconstruction.

However, development can also reduce disaster risks if it is properly planned and sustainable. Strong infrastructure, health systems, education, early warning systems, housing standards, and social security reduce vulnerability. Thus, disaster risk reduction must be integrated into development planning.

This has led to the modern approach of Disaster Risk Reduction (DRR) and Build Back Better, where development after disasters focuses on building safer and resilient communities. Climate-resilient agriculture, eco-friendly construction, and sustainable resource management are examples of disaster-sensitive development.

In conclusion, disaster and development are deeply interconnected. Development decisions determine disaster risks, and disasters shape development paths. Therefore, disaster risk reduction must be an essential part of all development planning.

Q5. Discuss the major cross-cutting issues in disaster management.

Cross-cutting issues in disaster management are those issues that influence all phases and aspects of disaster risk reduction, preparedness, response, and recovery. These issues determine the effectiveness and inclusiveness of disaster management strategies.

One major cross-cutting issue is gender. Women, children, elderly persons, and persons with disabilities are more vulnerable during disasters. Women face health risks, lack of sanitation, security issues, and increased domestic burden during disasters. At the same time, women play an important role in community preparedness and recovery. Therefore, disaster management must be gender-sensitive and inclusive.

Another important issue is poverty and vulnerability. Poor communities live in unsafe locations such as floodplains, slums, and unstable slopes. They lack strong houses, savings, insurance, and access to information. Poverty increases disaster risks, and disasters deepen poverty.

Climate change is a major cross-cutting challenge as it increases the frequency and intensity of floods, cyclones, droughts, heatwaves, and sea-level rise. Disaster management must integrate climate adaptation and resilience strategies.

Environmental protection is also crucial. Healthy ecosystems such as forests, wetlands, and mangroves act as natural buffers against disasters. Environmental degradation increases disaster risks.

Technology and communication play a vital role in early warning systems, disaster mapping, satellite monitoring, and rescue operations. Proper use of technology improves disaster preparedness and response.

Community participation and capacity building are essential cross-cutting issues. Local communities are the first responders during disasters. Training, awareness, and local leadership make disaster management more effective and sustainable.

Thus, disaster management is not merely an administrative task but a multi-dimensional social process that must address gender, environment, poverty, climate change, technology, and community participation together.

Q6. Explain the role of community participation in disaster management.

Community participation plays a central and indispensable role in effective disaster management. Disasters affect local communities first, and it is the community members who act as the first responders before external help arrives. Therefore, disaster management is no longer seen only as a government responsibility but as a shared responsibility between the state, institutions, and local communities.

Community participation is important in all phases of disaster management—mitigation, preparedness, response, and recovery. In the mitigation phase, communities help in identifying local hazards, unsafe areas, weak structures, and vulnerable groups. Their local knowledge about floods, cyclones, drought patterns, and landslides helps authorities in preparing realistic risk maps and safety plans. Communities also contribute to reducing risks through activities such as tree plantation, protection of water bodies, maintenance of embankments, and safe construction practices.

In the preparedness phase, community participation becomes even more crucial. Local people can be trained in first aid, search and rescue, evacuation procedures, fire safety, and early warning dissemination. Formation of village disaster management committees, mock drills, and awareness programmes strengthen readiness. When people know what to do, where to go, and how to protect themselves, casualties can be significantly reduced.

During the response phase, communities act as the fastest and most effective responders. Neighbours rescue trapped persons, provide immediate first aid, share food, shelter displaced families, and guide external rescue teams. Local volunteers play a crucial role in maintaining order, identifying the injured, and preventing panic.

In the recovery phase, community participation ensures fair rehabilitation and sustainable reconstruction. People identify real needs related to housing, livelihoods, education, and health. Participation prevents corruption, elite control, and misuse of relief funds. It also builds a sense of ownership over reconstruction projects.

Community-based disaster management (CBDM) is now widely accepted as the most effective approach. It empowers people, builds resilience, reduces dependency, and ensures culturally appropriate solutions. However, community participation also faces challenges such as lack of training, poverty, social inequality, gender discrimination, and weak institutional support.

In conclusion, disasters can be managed successfully only when communities are not treated as helpless victims but as active partners. Strong, trained, and organized communities form the backbone of disaster resilience.

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Q7. Discuss the role of Non-Governmental Organizations (NGOs) in disaster management.

Non-Governmental Organizations (NGOs) play a vital role in disaster management, especially in countries like India where disasters are frequent and large populations are affected. NGOs work at the grassroots level and act as a bridge between the government, affected communities, and international aid agencies.

In the pre-disaster phase, NGOs are deeply involved in awareness generation, training, and preparedness activities. They conduct disaster awareness programmes in schools, villages, slums, and coastal areas. NGOs train local volunteers in first aid, search and rescue, fire safety, and early warning systems. They also help in preparing village disaster management plans and strengthening local institutions. Their close connection with communities makes their preparedness efforts highly effective.

During the response phase, NGOs play a critical role in rescue and relief operations. They provide emergency food, drinking water, shelter materials, clothes, medicines, and sanitation facilities. Many NGOs have trained relief teams that work alongside government agencies like the NDRF and civil administration. They reach remote and marginalized areas where official machinery often arrives late.

In the recovery phase, NGOs focus on long-term rehabilitation. They assist in rebuilding houses, schools, hospitals, and community infrastructure. NGOs also support livelihood restoration through skill training, microcredit, self-help groups, and agricultural assistance. They provide psychological counseling to trauma victims, especially women and children.

NGOs also play an important role in advocacy and accountability. They highlight the problems of displaced and marginalized communities, ensure transparency in relief distribution, and demand better policies from the government. Their research and documentation improve future disaster planning.

However, NGOs also face challenges such as lack of funding, coordination problems, duplication of work, and dependence on donors. Sometimes, political interference and weak regulation also affect their functioning.

Despite these limitations, NGOs remain one of the most trusted and effective actors in disaster management. Their flexibility, community trust, and humanitarian commitment make them indispensable partners in building disaster-resilient societies.

Q8. Explain the importance of early warning systems in disaster management.

Early Warning Systems (EWS) are among the most powerful tools in disaster management. They help in predicting disasters and issuing timely alerts so that people and authorities can take preventive and protective measures. An effective early warning system can save thousands of lives and reduce economic losses.

Early warning systems generally consist of four main components: risk knowledge, monitoring and forecasting, dissemination of warnings, and response capability. Risk knowledge involves identifying hazard-prone areas and vulnerable populations. Monitoring systems use technology such as satellites, radars, seismic sensors, river gauges, and weather stations to track possible disaster events. Forecasting agencies then analyze this data to predict disasters such as cyclones, floods, tsunamis, earthquakes (limited), heatwaves, and epidemics.

The next crucial step is warning dissemination. Warnings must reach people quickly, clearly, and in a language they understand. Sirens, mobile messages, radio, television, social media, loudspeakers, and community volunteers are used for this purpose. The final and most important component is the response capability of people. Even the best warning is useless if people do not know how to respond.

India has developed strong early warning systems for cyclones, floods, tsunamis, and heatwaves through institutions like the Indian Meteorological Department (IMD), Central Water Commission, and National Centre for Ocean Information Services. The effectiveness of cyclone early warnings has significantly reduced deaths in coastal states like Odisha and Andhra Pradesh.

Early warning systems not only save lives but also protect property, crops, livestock, and infrastructure. Fishermen can return to shore, farmers can protect crops, and administrations can evacuate vulnerable populations in time.

However, challenges still exist such as last-mile connectivity, technical failures, lack of awareness, and distrust in warnings. Therefore, early warning systems must be integrated with strong community awareness and disaster preparedness.

In conclusion, early warning systems form the backbone of modern disaster risk reduction and are essential for building safe and resilient societies.

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Q9. Discuss disaster response and relief operations in India.

Disaster response and relief operations are the immediate actions taken during and after a disaster to save lives, provide emergency assistance, and reduce further damage. In India, disaster response has become more structured and coordinated after the enactment of the Disaster Management Act, 2005.

When a disaster occurs, the District Administration becomes the first authority responsible for response. The District Collector activates emergency control rooms, coordinates rescue teams, ensures evacuation, sets up relief camps, and arranges food, water, shelter, and medical care. Police, fire services, health departments, and civil defence assist in operations.

At the state level, the State Disaster Management Authority (SDMA) mobilizes resources of different departments and provides financial and technical support. If the disaster is large, the National Disaster Response Force (NDRF) is deployed for specialized rescue operations such as flood rescue, collapsed structure rescue, and chemical hazard response.

The armed forces play a crucial role during mega disasters by providing helicopters, boats, engineering units, and medical teams. NGOs, Red Cross, voluntary groups, and community volunteers supply relief materials and support rescue efforts.

Relief operations include distribution of food, drinking water, clothes, medicines, temporary shelters, sanitation facilities, and compensation to victims. Special attention is given to women, children, elderly, and persons with disabilities.

Despite improvements, India’s disaster response still faces challenges like delays, coordination issues, shortage of trained manpower, poor infrastructure in remote areas, and corruption in relief distribution.

In recent years, the focus has shifted from reactive relief to proactive preparedness and professional response. The increasing use of technology, early warning, and community participation has improved India’s disaster response capacity significantly.

Q10. Explain the concept of disaster resilience and its significance.

Disaster resilience refers to the ability of individuals, communities, institutions, and systems to anticipate, withstand, respond to, recover from, and adapt to disasters without losing their essential functions. It is not only about surviving disasters but also about rebuilding stronger and safer systems.

Resilience involves physical, social, economic, environmental, and institutional dimensions. Physical resilience includes strong buildings, safe infrastructure, and hazard-resistant housing. Social resilience includes education, awareness, social networks, community cooperation, and trust. Economic resilience includes diversified livelihoods, savings, insurance, and financial security. Environmental resilience refers to healthy ecosystems such as forests, wetlands, and mangroves that act as natural buffers. Institutional resilience includes effective governance, disaster planning, trained institutions, and strong policies.

Building disaster resilience requires long-term investment in disaster risk reduction. This includes safe land-use planning, climate-resilient agriculture, early warning systems, education, health infrastructure, and community-based preparedness. The concept of “Build Back Better” emphasizes that reconstruction after disasters should improve safety standards rather than restore old vulnerabilities.

Resilience is especially important in the context of climate change, which is increasing the frequency and intensity of disasters. Floods, storms, droughts, and heatwaves are becoming more severe, making resilience essential for survival and sustainable development.

In India, resilience-building is being promoted through schemes related to housing, infrastructure, climate adaptation, insurance, digital early warning, and community disaster management.

In conclusion, disaster resilience is the foundation of modern disaster management. Without resilience, development gains remain fragile and vulnerable. A disaster-resilient society is safer, stronger, and better prepared for future challenges.

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