The Odisha Model: A Comprehensive
Analysis of Disaster Management
Institutions and Technological
Framework
Executive Summary
Odisha, a state uniquely vulnerable to natural disasters due to its location on the eastern
coast of India, has undergone a profound transformation in its approach to disaster
management. Catalyzed by the catastrophic Super Cyclone of 1999, the state has successfully
shifted its paradigm from a reactive, relief-centric model to a proactive, comprehensive
framework for disaster risk reduction. This report confirms the existence of a robust,
multi-layered institutional framework and a pioneering technological infrastructure, which
together form what is now widely recognized as the "Odisha Model" of disaster resilience.
At the core of this framework is the Odisha State Disaster Management Authority (OSDMA),
an apex body that has pioneered a decentralized, community-centric approach to
preparedness. This is complemented by an advanced technological system, most notably the
Early Warning Dissemination System (EWDS), which features communication towers and a
multi-channel alert network designed to reach the "last mile" of vulnerable populations. An
analysis of major events like Cyclone Phailin (2013) and Cyclone Fani (2019) validates the
efficacy of this model in its primary objective: minimizing the loss of human life. However, a
crucial nuance is revealed in the post-disaster phase of Cyclone Fani, where despite saving
countless lives, the state faced significant challenges in mitigating large-scale economic and
infrastructural damage. The report concludes that while Odisha stands as a global leader in
disaster preparedness, its journey toward achieving total resilience—one that protects both
people and their livelihoods—is an ongoing endeavor.
Introduction and Historical Context: The Catalyst of
Change
Odisha's geographic location on the Bay of Bengal makes it highly susceptible to a range of
natural calamities, including cyclones, floods, and droughts.1 For decades, the state's
response to these recurring hazards was predominantly reactive, focusing on providing relief
after a disaster had already struck. This approach proved devastatingly insufficient when the
1999 Super Cyclone made landfall, claiming approximately 10,000 lives and causing immense
damage to the state's infrastructure and economy. This immense human and material toll
served not as a singular catastrophe, but as the critical catalyst that forced a fundamental
re-evaluation of the state’s entire disaster management strategy.3
In the immediate aftermath of this event, the Government of Odisha initiated a profound
paradigm shift. Recognizing that a reactive approach was unsustainable, the state embarked
on a mission to build a comprehensive, proactive, and integrated framework for disaster risk
reduction.2 This new approach, often referred to as the "Odisha Model," laid the groundwork
for a system focused on prevention, mitigation, and preparedness rather than a mere
post-disaster response. This historical pivot set the stage for the creation of the institutional
and technological structures that have since become a model for other regions facing similar
climatic threats.2
Institutional Framework: The Engine of Disaster
Preparedness
The foundation of Odisha's modern disaster management framework is its multi-layered
institutional structure, which extends from the highest levels of state governance down to the
community level. The centerpiece of this structure is the Odisha State Disaster Management
Authority (OSDMA).
The Odisha State Disaster Management Authority (OSDMA): The Apex
Body
Established on December 28, 1999, in the direct wake of the Super Cyclone, OSDMA was
created as an autonomous, non-profit organization.3 Its formation was a pioneering move,
making Odisha the first state in India to create a dedicated disaster management authority,
even predating the National Disaster Management Authority (NDMA).2 OSDMA operates under
the administrative oversight of the Revenue and Disaster Management Department and is
overseen by a governing body chaired by the Chief Secretary of the Government of Odisha.3
OSDMA's mandate goes far beyond simple relief efforts. It is tasked with a wide range of
responsibilities, including collecting and analyzing data on all aspects of disasters, preparing
and updating state-level policies and plans, and promoting a culture of preparedness among
all stakeholders.4 This broad and forward-looking mandate was a direct response to the
institutional shortcomings exposed by the 1999 cyclone. The magnitude of that calamity
compelled the state to create a statutory body with a comprehensive vision, leading to the
ingraining of a coordinated, disaster-preparedness ethos into the state's governance.2
The Multi-Layered Governance Structure
Odisha's framework operates on a multi-tiered structure designed to ensure a rapid and
coordinated response. The central hub for disaster monitoring and coordination is the State
Emergency Operation Centre (SEOC).1 This central body communicates with its counterparts
at the district and local levels to facilitate seamless information flow and resource
mobilization.
At the district level, each of Odisha's 30 districts has a District Emergency Operation Centre
(DEOC), which functions as the nerve center for disaster management in its respective
jurisdiction.12 The DEOC is under the administrative and supervisory control of the District
Magistrate and Collector and is responsible for monitoring, coordinating, and implementing
local disaster plans.12 Further decentralizing this structure are the Block Emergency Operation
Centres (BEOCs).11
This framework's true strength, however, lies in its ground-up, community-centric approach.
While a top-down hierarchy is essential for coordination, the state's success is equally
dependent on its deliberate policy to empower local communities and authorities. The
establishment of Village and Urban Disaster Management Committees (VDMCs/UDMCs)
empowers local communities to act as first responders and active participants in disaster
preparedness.2 These committees, along with the management of over 800 multipurpose
flood and cyclone shelters, demonstrate that the state's strategy is deeply embedded at the
local level.5 This decentralization of responsibility provides local ownership and rapid,
localized response capabilities, which proved crucial for the massive evacuation efforts during
major cyclones.
The state's coordinated model also extends to inter-agency and inter-departmental
collaboration. As mandated by the Disaster Management Act of 2005, all departments, such
as the Energy Department, are required to prepare and update their own disaster
management plans annually.6 The Energy Department's plan, for instance, details its
coordination with OSDMA, the Special Relief Commissioner (SRC), and central agencies like
NDMA and NDRF. This demonstrates a comprehensive, planned, and multi-layered response
that ensures all critical sectors are aligned for effective disaster management.6
Level Institution/Committee Key Responsibilities
State OSDMA / SEOC Policy formulation,
planning, coordination, and
overseeing all aspects of
disaster management.11
District DEOC Serves as the nerve center
for the district,
coordinating and
implementing local disaster
plans and maintaining
resource inventory.12
Block BEOC Provides local-level
coordination and is
connected to the SEOC
and DEOCs via the Early
Warning Dissemination
System.11
Community VDMC / UDMC Responsible for
community-based
preparedness, risk
assessment, and initial
response activities.2
Technological Infrastructure: The "Towers Which
Transfer Signals"
Odisha's institutional framework is supported by a sophisticated technological ecosystem that
enables proactive and effective disaster preparedness. A core component of this system,
which directly addresses the query regarding signal-transmitting towers, is the Early Warning
Dissemination System (EWDS).
The Early Warning Dissemination System (EWDS)
The EWDS is a pioneering, failsafe communication network designed to address the critical
gap in disseminating disaster warnings to the community level.16 The system features 122
siren-equipped alert towers installed in six coastal districts: Balasore, Bhadrak, Kendrapara,
Jagatsinghpur, Puri, and Ganjam.5 These towers can be activated with a single push of a
button from a control room in the state capital, with the sirens and voice messages audible up
to a radius of 1.5 km.18
The EWDS is not merely a set of sirens; it is a deeply integrated system that uses multiple
technologies to ensure redundancy and reliability. This system's strength lies in how its
components are designed to compensate for the potential failure of others. For example,
during a cyclone, conventional terrestrial communication networks often fail due to damage or
network overload.19 To counter this, the EWDS uses Satellite-Based Mobile Data Voice
Terminals (SBMDV) to provide a failsafe communication channel.11 Digital Mobile Radio (DMR)
also provides robust connectivity between the SEOC, DEOCs, BEOCs, and Fish Landing
Centres.11 The system also includes a Mass Messaging System to send alerts to mobile
phones, ensuring that warnings reach people through multiple channels.20 OSDMA further
augments this by maintaining 58 INMARSAT handheld satellite phones for key disaster
managers at the state and district levels, ensuring communication in any eventuality.19 The
EWDS represents a fundamental shift in disaster preparedness, moving from a reactive model
to a preemptive one that can alert the last person in a remote coastal area within minutes of a
warning.16
The "SATARK" Decision Support System
Beyond the EWDS, OSDMA has developed advanced technological tools to aid in disaster
management. A prime example is the "SATARK" (System for Assessing, Tracking and Alerting
Disaster Risk Information based on Dynamic Risk Knowledge) system.7 This web and
smartphone-based tool utilizes a "machine learning algorithm" to translate generic weather
forecasts into user-friendly, actionable advisories for a wide range of hazards, including
lightning, heatwaves, floods, and agricultural risks.21 The system can issue real-time alerts and
advisories, even providing a lead time of 30 minutes for probable dangerous thunderstorms
based on data from lightning monitoring sensors.21
The technology in the Odisha Model elevates the system from simple data dissemination to
intelligent, context-aware risk communication. The "SATARK" system is capable of generating
alerts in both English and the local Odia language, ensuring that vital information is
understandable and accessible to the most vulnerable populations.7 This technology, along
with a GIS Cell for hazard mapping and vulnerability assessment, signifies a deliberate move
toward a predictive approach to disaster management, enabling proactive measures such as
mass evacuations well before a disaster strikes.10
Technology Function Network Scope
Early Warning Disseminates siren and 122 coastal locations in 6
Dissemination System voice alerts from 122 districts.5
(EWDS) towers to coastal
communities
Satellite Phones Provides failsafe Key disaster managers at
communication for key state and district levels.19
disaster managers when
terrestrial networks are
down
Digital Mobile Radio Ensures reliable voice and SEOC, 6 DEOCs, 22 BEOCs,
(DMR) data connectivity between and 14 FLCs.11
emergency operation
centers
"SATARK" App Provides multi-hazard, State-wide via web and
real-time alerts and mobile application.21
advisories using a machine
learning algorithm
GIS Cell Functions as a decision State-wide GIS database.10
support system for disaster
management and resource
planning
The Odisha Model in Practice: Case Studies in Nuance
The effectiveness of Odisha's institutional and technological framework is best demonstrated
through its handling of major natural disasters. The state's response to Cyclone Phailin (2013)
and Cyclone Fani (2019) serves as both a testament to its success and a point of critical
analysis.
Cyclone Phailin (2013): A Definitive Success Story
Cyclone Phailin provided the first major test of the newly established framework. The state's
response was a remarkable success, with the framework leading to the evacuation of over one
million people from the path of the cyclone.1 This well-coordinated effort, driven by timely
early warnings and a community-centric approach, resulted in a dramatic reduction in
casualties compared to the 1999 Super Cyclone.5 This event validated the state's strategic
shift and proved that its investments in preparedness had been highly effective in saving
human lives.1
Cyclone Fani (2019): A Tale of Success and Failure
The response to Cyclone Fani further demonstrated the state's proficiency in saving lives. The
government successfully evacuated over 1.1 million people, again resulting in a minimal loss of
life.1 The EWDS and the "SATARK" app were instrumental in this achievement, providing timely,
location-based alerts that facilitated rapid and large-scale evacuations.7
However, a closer look at the post-disaster phase of Fani reveals a more nuanced reality,
leading many to label it a "mixture of success and failure".7 While the state's institutional and
technological systems successfully minimized the loss of life, they were less effective in
mitigating the extensive economic and infrastructural damage. The cyclone caused an
estimated $2352 million in damages, affecting 16.5 million people and destroying critical
modern lifelines.7 Personal accounts from affected individuals highlight significant failures in
the post-disaster relief and rehabilitation efforts.23 For example, electricity was not restored
for several weeks in some areas, leading to a breakdown in essential services and access to
clean drinking water, which triggered a mini diarrhea outbreak.23 These accounts reveal a
critical gap between the state's demonstrated capacity for life-saving evacuations and its
performance on related fronts such as relief and long-term recovery. The monumental
success in evacuation numbers, while a testament to the state's preparedness, may have
diverted attention from these lingering on-the-ground challenges.23
Event Casualties People Economic Key Takeaway
Evacuated Damage
1999 Super ~10,000 N/A (Limited Extensive, Catastrophic
Cyclone deaths Evacuation) comparable to failure; a
Fani catalyst for
change.3
Cyclone Very few ~1 million N/A Definitive
Phailin (2013) deaths people success;
validation of
the new
framework.1
Cyclone Fani 64 deaths ~1.1 million ~$2.352 million Nuanced
(2019) people success;
minimal loss of
life but major
economic and
infrastructure
damage.1
Discussion and Recommendations
The Odisha Model stands as a powerful testament to the value of adaptive governance,
proactive planning, and strategic investment in infrastructure and technology. Its success is
built upon four key pillars: a comprehensive, multi-layered institutional framework; a
ground-up, community-centric approach; robust capacity-building at all levels; and a
pioneering technological infrastructure.2 These elements have collectively transformed a state
once synonymous with disaster into a global leader in preparedness.
Despite this success, a critical vulnerability remains: the disconnect between saving lives and
protecting assets and livelihoods. The massive economic damage caused by Cyclone Fani
highlights that while the state's early warning and evacuation systems are world-class, its
infrastructure has yet to achieve a comparable level of resilience.
To address these persistent challenges and move toward a more holistic model of resilience,
the following recommendations are suggested:
● Investment in Resilient Infrastructure: The state should prioritize a hazard reduction
strategy that includes structural reinforcement and building disaster-resilient housing. A
major focus should be on undergrounding essential lifelines, such as power supply and
telecommunication networks, to prevent widespread and prolonged disruption of
services.7
● Strengthening Post-Disaster Logistics: While large-scale evacuations are now a
strength, the on-the-ground delivery of relief and rehabilitation requires further
improvement. This includes ensuring adequate supplies of food, clean water, and medical
care in shelters and affected areas.23
● Continued Technological Integration: The state should further leverage its GIS and
remote sensing capabilities for real-time damage assessment and to optimize the
deployment of relief and restoration resources.
Conclusion
In summary, Odisha has successfully developed and implemented a sophisticated,
multi-tiered disaster management framework. The state’s institutions, from the pioneering
OSDMA down to the community-level committees, and its advanced technological systems,
including the EWDS towers and the "SATARK" app, function as a cohesive and highly effective
unit. The evidence from major cyclones demonstrates that this framework has been
overwhelmingly successful in its primary goal of minimizing the loss of human life. However,
the journey toward total resilience is not yet complete. The significant economic and
infrastructural damages incurred during recent events underscore that the next frontier of
disaster management for Odisha must be the comprehensive protection of assets and
livelihoods.
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