Revitalizing Mobility: A Comprehensive Analysis of Public Transport in Odisha
Recently, at the 17th Urban Mobility India Conference and Expo held in Gandhinagar, Gujarat, Bhubaneswar earned the title of "City with the Best Public Transport System” for the second consecutive year in 2024, thanks to the city mobility services ‘Mo Bus’ and ‘Mo-E Ride.’ This accolade is especially remarkable for a city that lacked an organized public transport system before 2018. However, there is still work to be done in developing a robust network that provides last-mile connectivity, along with safe, affordable, and reliable services for the wider public in both urban and rural Odisha.
Public transport refers to any mode of transport available for hire and reward and accessible to the general public. This includes buses, trains, trams, taxis, subways, metro rail, and even air and sea services. Public transport encompasses both passenger and freight services and varies in terms of cost and capacity, ranging from low-capacity options like taxis and mini-buses to higher-cost systems. As the state continues to grow and evolve, the importance of public transport becomes increasingly clear—not just for convenience but for sustainability, economic growth, and social equity.
One of the most compelling arguments for robust public transport systems is their economic impact. Efficient public transportation can reduce traffic congestion, leading to lower travel times and increased productivity. By improving access to jobs, education, and services, public transport fosters economic opportunities and helps stimulate local economies. Studies show that investing in public transportation can generate economic returns that are five to seven times greater than the initial investment. Moreover, investing in public transport infrastructure can create jobs. From construction and engineering to operations and maintenance, a wide range of employment opportunities emerges when cities enhance their transit systems. This investment not only supports immediate job creation but also contributes to long-term economic growth. The Delhi Metro Rail Corporation (DMRC) created over 1.5 lakh jobs during its construction phase and continues to employ around 15,000 people for operations and maintenance.
Transportation is a major contributor to greenhouse gas emissions, with personal vehicles being one of the primary culprits. A recent NITI Aayog report indicates that road transportation contributes 12% of CO2 emissions. While this figure may appear modest, the growing mobility demands of our rapidly urbanizing country and rising energy needs could significantly alter the future landscape. If not addressed, CO2 emissions from the road transport sector are projected to double by 2050, jeopardizing efforts to achieve net-zero targets. Public transit systems offer a more sustainable alternative by significantly reducing the number of cars on the road. For instance, a full bus can replace multiple cars, leading to lower emissions and reduced fuel consumption. This is why public transportation is a critical component in the fight against climate change. Additionally, the government is working to transition to electric or hybrid public transport, which will further decrease carbon footprints. By investing in sustainable public transport, municipalities can progress toward their climate goals while promoting cleaner air and healthier communities.
Public transport also promotes social equity by providing mobility for those who may not have access to private vehicles, including low-income individuals, the elderly, people with disabilities, and women. Access to reliable public transport can be transformative, offering these groups the means to access essential services, job opportunities, and social activities. Public transport systems can be designed inclusively, with features such as low-floor buses, accessible train stations, and priority seating, helping ensure that all community members can travel safely and comfortably.
Complementing the national economy, Odisha is currently growing at an 8.5% rate. The state has grown into a $100 billion economy over the past decade, with a paradigm shift in education, the service sector, and urban life. In this transformation, a well-networked public transportation system plays a crucial role. Odisha has a robust transportation network of roads, railways, airports, and seaports. The state boasts approximately 254,845 km of roadways, including 5,762 km of national highways and 4,100 km of state highways. Odisha is connected to neighboring states and other regions of India through 41 national highways. The railway network spans about 2,652 km within the state. Odisha has one international and three domestic airports for commercial flights, along with 17 airstrips and 16 helipads. Public transportation facilitates both intercity and intracity travel through bus and rail services. The Capital Regional Urban Transport (CRUT) offers city bus services alongside private operators, while the Odisha State Road Transport Corporation (OSRTC) provides regional bus services. On the eve of World Public Transport Day, let’s explore the condition, reach, and impact of public transport in our state, as well as the significant transformations it has undergone over the past few decades.
Dynamics of Interstate and Intrastate Public Transportation
The core modes of transportation used to meet both interstate and intrastate mobility needs are railways, airways, and buses. These modes of public transport are traditionally owned and managed by state authorities. In some cases, private companies or corporations may operate these services, but they must still comply with rules and regulations set by the relevant state or central authorities. Consequently, both central and state governments play a crucial role in managing and regulating these transportation systems.
Imperative for railway transformation in modern Odisha
As of 2022 the total railway network of Odisha stands at 5832 km, which is majorly served through East-coast railways. It is one of the major inter and intra state public transport modes for both passenger and freight that not only serves seamless mobility but also connects the mineral rich belt with major industries of the state as well as neighboring states.
To further strengthen the railway infrastructure in Odisha, the Centre made budgetary provision of Rs 10,586 crore in 2024-25, which is part of the proposed 1 lakh crore investment in next 5 years. This major move will not only improve connectivity but also help in boosting tourism and business.
Being a higher cost variant of public transport, the government has a greater role to play in this mode of transportation, starting from infrastructure to maintenance to service, connectivity and safety. Railways have an important role when it comes to connecting longer distances, transporting heavier goods, and also complementing industrial developments in the state. A well transitioned railway system could help improve tourism, small and marginal businesses and agribusiness.
In the last 10 to 15 years, Indian Railways has undergone significant transformations across various dimensions, not just in terms of diversification, looks and services but also ease in booking, timely services, professionalism of staff and accessibility. Major upgrades to stations, tracks, and signaling systems have been initiated. Many stations have been revamped to offer modern amenities and improve passenger experience. Initiatives to make trains and stations more accessible for differently-abled passengers have been introduced, ensuring a more inclusive travel experience.
The introduction of high-speed trains, such as the Gatimaan Express, Vande Bharat Express, which offers faster and more comfortable travel, has modernized rail travel. With the recent addition of 3 new Vande Bharata express trains, Odisha has a total of 6 Vande Bharat presently running through the state. A significant push towards electrifying railway lines has been made, with the goal of achieving 100% electrification. Enhanced safety measures have been implemented, including the installation of fire and smoke detection systems, improved signaling, and the introduction of the Kavach system for train protection.
Adoption of technology in operations and services has improved efficiency. Initiatives like the National Train Enquiry System (NTES), real-time tracking, and mobile apps for ticket booking and inquiries have enhanced user convenience. Increased collaboration with private entities for train operations, station redevelopment, and catering services by IRCTC has spurred innovation and investment. Improvements in onboard services, including better catering, Wi-Fi availability, and clean coaches, have elevated the travel experience.
However, despite the attempt to revamp rail service, along with improved connectivity, the challenges regarding safety and quality service still persist. Indian Railways saw a series of train accidents in the recent past, with the Balasore train crash being the most fatal. Given the accidents, and lack of safety and accountability some of the major challenges that Indian railway faces are as follows Technical glitches and system failures, such as the electronic interlocking error in the Balasore train crash, poses a significant challenge to ensuring the safety of Indian Railways. These issues can lead to signaling errors, track misalignment, and other critical safety hazards.
Rakesh Nayak, a resident of Bhubaneswar said, “Nowadays young professionals are a little reluctant to travel by train, especially inter-state, because of the long travel time plus safety and hygiene issues. People prefer to take airways to save time and also it is considered as a safer mode of transport.” Incomplete Safety Systems for example Kavach (Train Collision Avoidance System), though promising, covers only 1% of the rail network, that is insufficient to reduce accidents due to human errors. Delayed infrastructure upgrades strain the system. For example The Bahanaga Bazar accident in Odisha was due to faulty wiring and signaling. Human error, such as incorrect setting of points, mistakes in shunting operations, and overspeeding, has been identified as a significant factor contributing to train accidents.
Biswajeet, a student at BJB Autonomous college said, “I prefer train travel over bus, because of various reasons. Firstly because trains are more cost effective while traveling intra-state. Secondly, specifically due to motion sickness, a train journey is more comfortable for me than a bus. Bus is more congested and less ventilated. Also in trains there are refreshment options available which are not there in buses. Last but not least, train travel gives a different experience as we get to travel through the hinterlands. I enjoy the scenic view while traveling by train.” Train journey no doubt gives a better travel experience, as people enjoy the long journey with family and friends. It is not monotonous. However Shikha, an IT professional working with TCS Hyderabad said, “I don’t prefer solo overnight journeys in trains because of safety concerns. Also, the reduced domestic airfare these days has made it more convenient for us, as it takes less time to reach the destination.”
While the beautification of trains and the introduction of superfast services are welcoming measures, improving security and ensuring timely service would undoubtedly make train journeys more preferable and enjoyable for passengers.
Airways, once a luxury, have now become a necessity
Odisha has 19 airports/airstrips of which 12 are state-owned and 13 heliports. The Biju Patnaik International Airport, Bhubaneswar is licensed for operation of intra-state, inter-state and international flights while the VSS Airport, Jharsuguda, Utkela Airport, Kalahandi and Jeypore Airport, Koraput are providing intra-state and inter-state flights. There is a proposed international airport for Puri, which is expected to improve tourism and reduce air traffic at the Biju Patnaik International Airport.
Bhubananada Mohanty, a worker at a Central PSU said, “Airways have reduced distance between places. For people like us it is now easier to travel back home from our work place on weekends.” There have been significant steps taken by the national government through schemes like UDAN and price capping on air fares to make it more affordable. “Though Bhubaneswar airport is well connected to all domestic airports within the country, yet we don't find direct flights to any major airports internationally. We always have to take transit flights with stops at Mumbai, Delhi or Kolkata. That makes it a little more costly for us,” said Vanipriya, a resident of Bhubaneswar.
However, in a significant move by the state government, online ticket booking for direct flights to Dubai was inaugurated on April 1, 2023. The Civil aviation wing expanded international connectivity with addition of direct flights from Bhubaneswar to Singapore and Bangkok on June 3, 2023. It is a first of a kind initiative in India where the State Government is Funding the international flight.
Thus, airways provide a more convenient mode of transportation, by cutting the duration of travel. Also airports function as transit points for export and import of goods and services, it could help in expanding the business environment in the state by reducing the cost of exports. Even though, a little heavy on the middle class pocket, due to its convenience and time saving nature, it has become a preferred mode in the present time.
The Hybrid Operational Structure of State Bus Services
Buses are the most significant mode of road-based public transport in Odisha, serving both intrastate and interstate needs. In Odisha, intrastate transport through buses is operated by both the government and private operators. The Odisha State Road Transport Corporation (OSRTC), functioning under the Transport & Commerce Department of the Government of Odisha, is the sole provider of state-run passenger transport services.
In 1948, the state government took over bus operations previously run by princely states, establishing the State Transport Services (STS) within the Transport Department. With the enactment of the Central Road Transport Corporation Act (Act No. 64 of 1950), state governments were mandated to create Road Transport Corporations. Subsequently, the OSRTC Rules were established in 1967, and OSRTC officially became operational on May 15, 1974, inheriting the assets and employees of the State Transport Services. Launched with a share capital contribution from both the state and central governments in a 2:1 ratio, OSRTC expanded further in 1990 when the O.R.T. Company, primarily operating in southern Odisha, merged with OSRTC along with its assets, liabilities, and employees. Currently, OSRTC operates 638 buses across the state, serving both interstate and intrastate routes.
Presently, OSRTC functions at the Gram Panchayat (GP) and Block headquarters levels, while private buses play a major role in district-level transportation. Private buses are also the primary mode of transportation for interstate travel. The previous government introduced the Location Accessible Multi-modal Initiative (LAccMI) Scheme to connect all Gram Panchayats through an integrated public transport system. With a budget of ₹3,178 crore allocated over three years (FY 2023-24 to FY 2025-26), this initiative aims to elevate the service standards of the bus transport system across all 30 districts. Now operational as Mukhyamantri Bus Seva, the scheme’s primary objective is to enhance multimodal public transport connectivity between GPs, Block Headquarters, District Headquarters, key economic, educational, and medical hubs, and major transport nodes across the state. A reliable and efficient public transport system is expected to significantly boost the socio-economic well-being of the population.
However, within districts, the main bus network is still operated by private players, offering cost-effective and reliable services. Manisha, a resident of Cuttack and a student at VSSUT, shares, “For traveling to my institution at Burla, I generally prefer the bus. It is cost-effective and safe.” She added, “Apps like RedBus and other third-party booking platforms have made it much easier to book tickets and reserve seats, which is convenient for students like us.”
These core modes of transportation are undergoing constant transformation with the advent of new technologies and changing demand structures. However, they remain relatively rigid, offering limited choices to travelers and often lacking flexibility in service delivery. In contrast, urban transportation is inherently more dynamic, offering a variety of options for consumers. This flexibility, while beneficial to users, poses challenges for authorities to manage the structural and functional aspects while ensuring accessibility and sustainability of these services.
A visionary dawn for urban transport
Rapid urbanization in developing countries has led to an unprecedented increase in demand for mobility services, which in turn has put tremendous pressure on urban transport infrastructure and services. The primary components of the city's public transportation structure in odisha include buses, auto rickshaw, shared cab and reserved vehicle services etc. however except the capital city, there is no institutionalization of public transport system in other urban areas of the state.
The city transport consists of various agencies, including bus operators, metro services, regional transport authorities, and auto-rickshaw services, each governed by different bodies. However, there is no overarching organization to address all matters related to the transport sector, particularly public transport. This absence of a centralized authority results in these agencies functioning in isolation and lacking coordination. With individuals exercising their preference for workplace mobility, flexible occupations, and choice of type and nature of places to stay, city traffic patterns are becoming more dynamic these days. In such scenarios, fixed circuit systems may be either unutilised or require even higher degree of first and last mile connections to provide commuters the desired level of flexibility akin to personal modes of transport.
Comprehensive transport planning and operations has to go beyond the backbone systems like rail and road to encompass all modes that permit a seamless experience for the user from door to door. This involves modes that are not necessarily owned or operated by public agencies, but nonetheless have to become a part of the integrated transport experience. Further, this experience is coming to be enabled by technology in various forms that not only provide information for the user, but can go on to provide a seamless user experience. Many of these are outside the remit of the way in which transport services have been hitherto provided in the state, in which the government has played an overwhelmingly dominant role.
Thus an investment in more roads is not the solution to meet the growing mobility requirements. Expansion of roads without a networked public transport would only increase demand for private vehicles and thus could lead to more congestion, traffic and pollution in urban centers.
Evolution of a well-Structured city bus network over the past decade
In an attempt to create a well managed city public transport mode, the government of Odisha started MO-Bus in the year 2018 with a total of 200 buses in operation under Capital Region Urban transport (CRUT) for Bhubaneswar and Cuttack. At present CRUT is operating with 463 buses, out of which 83 are E-buses, in Bhubaneswar, Cuttack, Puri, Rourkela, Sambalpur and Berhampur. It is planning to expand to Baripada, Keonjhar, Angul, Balasore, Jajpur, Jharsuguda, Rayagada and Jeypore in the coming phase.
“When we started the operation there was a little ridership, maybe because a public transport culture was not there and also people used to think that such clean and well maintained public transport might be expensive for them. However with initiatives like free rides on certain days for women, good quality service changed public perception. In 2020 we crossed one lakh ridership for the first time before COVID hit the entire nation,” said Arun Bothra, Ex-MD, CRUT. He also added, “The previous attempts by the government to provide seamless public transport were not as successful as the Mo-Bus, because of several reasons. The first reason being complete control of government over the procurement, maintenance, service and safety of the bus service. It used to be very costly for the government and over time it became loss making and inefficient. However, the current Gross Cost Contract model proved to be effective as the procurement and maintenance of buses, recruitment of drivers and helpers is on the private owner. CRUT is responsible for management of services, bus routes, revenue generated from it and provision of public infrastructures like bus depot, charging points for E-buses, bus stands etc. Second reason for the success could be the rising demand due to the change in population dynamics in the last few years. Thirdly, the affordable and inclusive service that Mo-Bus provides helps in increasing ridership.” CRUT have focused on recruiting through skilling women, low-income, and transgender populations into it, to ensure their representation in the workforce. Additionally, through Mo E-Ride, CRUT has introduced electric three-wheelers that tackle first- and last-mile connectivity challenges. It effectively links underserved areas to the broader CRUT-operated transport network. With the focus on rider experience, gender equity, and energy efficient mode of transport, CRUT has successfully boosted ridership on its services by nearly 200% in less than five years, with 57% of passengers reportedly transitioning from private transport options. Thus, public private partnership turned out to be more effective in meeting growing mobility needs of urban population while maintaining the quality of services. Radhika, a daily commuter from Cuttack to Bhubaneswar said, “With Mo-Bus it became really convenient for working professionals like us, to commute daily without any hassle. The Mo-Bus app is making it even easier to locate a bus, plan or trip and book tickets online. The presence of women bus conductors gives us a more comfortable environment while traveling back home late at night. Overall it is pocket friendly and a very convenient mode for daily travelers, be it students or working professionals.”
However, the repeated cases of rash driving and accidents by Mo-Bus is of greater concern. Prabhakar Sahu, a resident of Bhubaneswar raised his concern considering the recent accident by Mo-Bus at the Chandrasekhar area. According to him, “It is very irresponsible of the drivers to rashly drive in the busy roads of the city. The authorities should take necessary action to prevent such repeated mishaps, by proper training of drivers and accountability of the managing body.” Improving these issues could create a better city transport experience for the public in general.
Prospects within the shared vehicle sector in urban odisha
“The Ola and Uber Cab service is life saving for people like me. It saves us from unnecessary bargaining with auto drivers, and helps find a cab within minutes. It has made mobility way more easier irrespective of whichever city or state you are in,” says Ayesha Gupta, working with an MNC at Bhubaneswar. “The advanced safety provisions that these services provide through tracking and sharing of locations with family and friends made it safer for girls. It is very useful for outsiders like us, as we don't have to struggle with language while giving instructions to the drivers. I think these service providers have revolutionized the traditional mode of transport experience,” She added.
However the services are limited to major cities like Bhubaneswar, Cuttack, Rourkela only. Thus, outsiders who work for central government PSUs or other companies having projects in rural Odisha, still facing the similar challenges with traditional mode of transport.
Rakesh, a management student in the city is a part-time Uber moto rider. He says, “Students like me work with Uber or Ola in our free time. It helps us with our expenses, kind of refreshing as well.”
However, several recurring issues lead to customer dissatisfaction with cab and auto drivers, and vice versa. Customers often become frustrated when auto drivers repeatedly request to cancel rides that are inconvenient for them, especially during emergencies. On the other hand, auto drivers express concerns about their earnings from platforms like Uber and Ola, noting that fares fluctuate based on market conditions, impacting their income during peak and off-peak times.One anonymous auto driver mentioned, "We have a union of auto drivers, so if someone works with Ola or Uber, they might face discrimination." This uncertainty regarding income from the drivers' perspective, coupled with the unprofessional behavior from some auto drivers towards customers, creates ongoing management challenges for these services. Addressing these issues could help improve the experience for both customers and drivers.
Metro rail: A long awaited transport solution or a costly white elephant?
The Government of Odisha has announced the development of a Mass Rapid Transit System (MRTS) in the Bhubaneswar region, spanning the route from Bhubaneswar Airport to Trisulia Square, along with other key areas of the city. The Delhi Metro Rail Corporation Limited (DMRC) was engaged to prepare the Detailed Project Report (DPR) for the metro rail system. The DPR was completed in a record time of four months and submitted to the Government in August 2023. The preparation of the DPR involved conducting traffic surveys, geo-technical investigations, topographic surveys, environmental and social impact assessments, and finalizing the alignment.
In August 2023, the Government of Odisha established the Bhubaneswar Metro Rail Corporation Limited (BMRCL), a state-owned public limited company, to oversee the project. The CEO and General Manager (Administration) were appointed during the same month.
On 14th November 2024, the Cabinet approved the project during its 66th meeting. The first phase of the metro system will cover a distance of 26 kilometers, with an estimated completion cost of ₹6255.94 crore, which will be fully funded by the Government of Odisha.
The metro corridor, which will run entirely on an elevated track, will feature 20 stations along its route, connecting key locations across the city. These stations will include, Biju Patnaik International Airport, Capital Hospital, Bapuji Nagar, Bhubaneswar Railway Station, Ram Mandir Square, Vani Vihar, Acharya Vihar, Jaydev Vihar, Xavier Square, Rail Sadan, District Centre, Damana Square, Patia Square, KIIT Square, Nandan Vihar, Raghunathpur, Nandan Kanan Zoological Park, Barang, Phulapokhari and Trisulia Square. The first phase of the Metro project will serve major educational institutions, hospitals, commercial complexes, transport nodes and Government & corporate offices. This ambitious project is expected to transform urban mobility in Bhubaneswar, providing efficient and sustainable public transportation for the city’s growing population.
From officials to citizens, everyone is quite excited at the prospect of this development. However, questions remain on how to make this capital-intensive project work in a small city like Bhubaneswar. Experts have highlighted that keeping metro systems operationally and financially viable in a small city requires well thought-out strategies.
Delhi is the only city in India with an extensive metro network, while other major cities like Mumbai and Bengaluru are working on expanding their metro systems to reach 200-300 km in length. However, most other cities still rely on limited metro corridors, often just one or two lines, which significantly restricts the network's ability to meet the actual transportation needs of commuters, discouraging commuters from opting for the metro system.
Metro projects in smaller cities, like Bhubaneswar, have struggled to achieve the desired ridership. For example, Lucknow's 23 km metro corridor has only attracted 8.6% of its projected ridership, and Jaipur's 12 km corridor serves just 7.6% of its projected numbers. Interestingly, even mega cities like Delhi, with its vast metro network, have not reached their full ridership potential, achieving only 79% of their projected figures.
Moreover, the financial viability of metro systems across India remains a major challenge, with most systems operating at significant losses. Delhi Metro, for instance, runs at an operational loss of about 15%, while Chennai Metro's losses are even higher, at around 42%.
Taphan Behra, drives a cab in the city. His brother and wife use the electric bus to travel to Cuttack and Puri for work. “We have very good Mo-Buses in Bhubaneswar. Our population is small. The metro will become a tourist and picnic spot for people, just like the Jaipur Metro,” he said. Thus, Bhubaneswar metro will turn out to be a transport solution or become the state’s ‘White elephant’, time will tell. But for now, we all are looking forward to it.
High levels of investment in roads, without corresponding improvements in public transport quality, result in an increased reliance on personal vehicles. This shift brings about several negative consequences, including fatalities, air pollution, and traffic congestion. To achieve sustainable development, a paradigm shift towards the avoid-shift-improve framework is essential for transitioning to public transport. Changing consumer preferences, heightened environmental awareness, advancements in technology, and the rise of digital payments and electric vehicles are anticipated to accelerate the emergence of innovative transport modes and models. These developments are expected to elevate public transport to new international standards, enhancing quality, sustainability, and efficiency for users.
From this above discussion we could conclude, in this current world public transport is asserted to be the transport and mobility system available for the public at large, not necessarily provided by the public sector authorities exclusively. Therefore, Public transport should encompass the entire door-to-door travel experience for users, integrating third-party infrastructure and resources. Which means it should include all forms of transportation, whether motorized or non-motorized, that are not self-owned. Thus, the role of public authority is not only limited to provide a mode of transport, rather it is important for the authority to create an environment for public transport at large with deep shifts in technology and innovations, which will lead us to sustainable living with better, safer, environmentally viable and affordable mobility options.
