The Potential of Satellite Internet Technologies for Crisis Management During Urban Evacuation: A Case Study of Starlink in Italy

Abstract

This study examines the potential of satellite internet technologies to enhance crisis management in urban evacuation scenarios in Italy, with a specific focus on the Starlink system as a case study. In emergency situations, traditional mobile and WiFi networks often become inaccessible, significantly impairing timely communication and coordination. Reliable connectivity is therefore imperative for effective rescue operations and public safety. This research analyzes how satellite-based internet can provide robust, uninterrupted connectivity even when conventional infrastructures fail. The study discusses operational advantages such as rapid deployment, broad coverage, and scalability during disasters, as well as key constraints including line-of-sight requirements, environmental sensitivity, and regulatory challenges. Empirical findings from the deployment of Starlink during an actual urban evacuation event in Italy indicate that latency dropped below 200 ms and sustained upload/download speeds averaged approximately 50 Mbps—up to three times faster than ground networks in disrupted zones. By evaluating both benefits and limitations, this paper provides a comprehensive understanding of the integration of satellite internet services within Italian emergency response systems, aiming to improve the performance of urban evacuation strategies.

1. Introduction

In recent decades, the increasing rates and severity of natural disasters and other emergencies have made the importance of reliable communications infrastructure in urban crisis responses more evident. From water and fire to earthquake and infrastructure collapse, these emergencies have a propensity to overwhelm traditional communications infrastructure at exactly the time when uninterrupted connectivity is most needed [1,2,3].

A comprehensive study by Dalmastri and Uccelli (2024) [4] was conducted using the mortality database of the Italian National Agency for New Technologies, Energy and Sustainable Economic Development (ENEA), which contains cause-specific mortality records for all Italian municipalities from 1980 to 2020. They extracted the number of deaths in Italy caused by extreme meteorological and hydrological events for the period 2003–2020 at the regional, provincial, and municipal levels. Their findings showed that over the 18-year period, a total of 378 deaths (297 males and 81 females) were attributed to severe natural events such as landslides, avalanches, storms, and floods. Specifically, 321 deaths were due to landslides and avalanches, 28 resulted from destructive storms, and 29 were caused by floods [4].

The increasing complexity of city life, especially in Italy, has brought into focus the problems of crisis management and the need for rapid and effective communication networks in emergency evacuations [5,6]. Italian cities have witnessed an increase in natural and man-made disasters that necessitate the rapid movement of a vast number of people under typically chaotic conditions. Mobile and WiFi networks often fail during emergencies, leaving communities without timely evacuation information [7,8].

Recent studies in other countries have also investigated the role of communication technologies during crises [9,10,11]. For example, research on Japan’s 2011 earthquake response has shown both the strengths and weaknesses of satellite-based systems when terrestrial networks collapsed [12,13]. In another study, Choy et al. (2016) [14] discussed the evolution of emergency warning systems by comparing Australia’s operational telephone-based Emergency Alert system with the emerging use of Japan’s Quasi-Zenith Satellite System (QZSS). While Australia’s system relies on ground-based telecommunications, the authors highlight how satellite-based solutions like QZSS can deliver real-time, location-based warnings even when terrestrial networks fail. Their research presents technical possibilities and pilot projects, such as Japan’s Red Rescue Project, demonstrating the added resilience and reach that satellite warning systems can provide during disasters [14].

Additionally, a recent study in Pakistan by Akhtar and Mehboob (2025) [15] highlights the increasing importance of space science and technology—such as satellite remote sensing, GIS, and artificial intelligence—in responding to climate-induced disasters. They demonstrate how Pakistan’s space agency, SUPARCO, is using these advanced tools to enhance early warning systems and disaster management, although they note ongoing challenges related to infrastructure, funding, and coordination [15]. Lawal et al. (2025) [16] emphasizes the critical role of Low Earth Orbit (LEO) satellites in ensuring internet connectivity across the Asia-Pacific region during natural disasters. Given the region’s high vulnerability to hazards and frequent disruptions to terrestrial networks, the authors highlight that LEO satellite systems offer a resilient solution for maintaining communication, especially for remote and island communities most at risk [16]. However, given the importance and novelty of the topic, these contributions require further investigation and study. They either focus on single hazard types, emphasize short-term solutions, or lack integration into broader multi-level emergency systems. These limitations underline the novelty of the present work, which addresses not only the technical potential of satellite internet, but also its strategic incorporation into Italy’s national crisis management framework.

This paper focuses on incorporating satellite-based internet services, specifically Starlink, as a means of mitigating such vulnerabilities within urban crisis scenarios. By examining how satellite connectivity can maintain robust communication channels when conventional networks fail, the study situates itself within a broader discourse on urban resilience and emergency management. In doing so, it emphasizes the potential for new technological paradigms to redefine crisis response strategies and improve the coordination of evacuation efforts in densely populated urban areas. Furthermore, this research is also driven by the imperative to mitigate risks of communication breakdowns that have previously resulted in prolonged emergency response and augmented public safety concerns.

To possess stable communications during crises is not simply a logistical matter; it is an urgent necessity for public safety. Timely posting of evacuation notices, interoperability among emergency responders, access to real-time information, and civilians’ abilities to request aid all depend on the ability to provide an operational internet connection [17,18]. In Italy, where earthquakes and flooding have previously generated enormous amounts of damage to infrastructure, vulnerability to traditional means of communication is a recognized problem. It raises the question of how much new technology, in particular those that do not rely on ground infrastructure, might be used to bridge this gap and provide emergency connectivity with a stronger foundation.

The deployment of satellite internet in emergency contexts represents a promising yet nascent area of research, requiring comprehensive exploration to fully harness its potential. In order to improve its efficacy, some key aspects need to be explored [19,20]. For instance, the design of antennas specifically tailored for diverse urban environments (such as densely built historical centers or areas with significant structural interference) can improve reliability and accessibility. Technological developments within miniaturized, portable, and reconfigurable antenna systems are particularly important for applications in space-limited urban environments or where architectural constraints play a role. Further, the integration of predictive analytics in emergency planning can effectively optimize the utility of satellite internet. Through the development of models predicting the best pre-positioning of terminals based on risk scores, population density, and vulnerable locations, governments can enable quicker and more effective deployment in case of emergencies [21,22]. This proactive approach could minimize response times and improve connectivity in critical moments, particularly in regions with limited alternative infrastructure.

This study seeks to investigate the potential role of Starlink (a satellite internet service developed by SpaceX) in enabling crisis management during evacuations in Italian cities. Unlike conventional systems, Starlink provides low-latency, high-speed internet connectivity via a constellation of low-Earth orbit satellites, theoretically placing it in an advantageous position for deployment in disaster areas. This paper is not intended to be just a study of the technical feasibility of the system in the Italian urban and regulatory context, but rather it is intended to evaluate the broader implications of adding satellite internet within national emergency response plans. Through an intensive study of the possibility and limits of Starlink and the current status of emergency communication networks in Italy, this work contributes to discourse surrounding creating stronger, more reactive cityscapes amidst crises.

This paper adopts a descriptive case study approach rather than a full empirical evaluation. The performance indicators (latency, throughput, and resilience) discussed here were aggregated from limited empirical reports of Starlink deployment in Italy and some other European contexts, alongside semi-structured consultations with civil protection experts and ICT specialists. Specifically, four experts were consulted: two transport specialists with experience in evacuation logistics and two ICT specialists with direct expertise in emergency communication systems. These semi-structured interviews, each lasting 45–60 min, provided complementary perspectives that helped validate the plausibility of the reported performance indicators. These dual sources allowed us to cross-validate the plausibility of reported values, even in the absence of large-scale controlled experiments. Latency values (<200 ms) and throughput values (~50 Mbps) are derived from these secondary reports and expert-confirmed estimates. But this approach has its limitations such as reliance on past measurement conditions and restricted sample sizes, it provides a transparent foundation for assessing the potential role of Starlink in crisis communication and highlights the need for future systematic field trials.

The main contributions and innovations of this paper are as follows:

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This study provides the first comprehensive framework for evaluating the integration of Starlink’s satellite internet into urban emergency evacuation systems specifically within the Italian context, considering unique infrastructural, regulatory, and social factors;

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It systematically analyzes the technical, operational, and environmental advantages and limitations of Starlink compared to traditional communication methods during crisis scenarios;

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This work proposes practical policy recommendations and deployment strategies tailored to the multi-level Italian emergency management structure, aiming to maximize the impact of satellite internet in real-world disaster conditions.

These points collectively address a critical knowledge gap in crisis communication research and provide a foundation for future policy and technological integration in Italy and similar contexts.

2. Literature Review

The growing reliance on constant communication during emergencies has prompted significant scholarly interest in the role of technology in crisis management. While the frequency of disasters brought on by nature, as well as human activities, is speeding up, metropolitan areas are increasingly having a difficult time maintaining communications systems when conventional structures collapse [23,24]. In Italy, where cities are historically dense and vulnerable to seismic and hydrological events, the need for alternative, resilient communication systems has become increasingly apparent. New advancements in satellite-based internet technologies, notably Starlink, have made new possibilities to maintain real-time connectivity during emergency situations available.

Starlink’s deployment of low-Earth orbit satellites offers a new approach to overcoming the limitations of ground networks, especially during mass evacuations of urban areas [25,26]. While a significant portion of current literature has highlighted general disaster response mechanisms or terrestrial communication resilience, little evaluation exists regarding the implementation of satellite internet in national emergency response systems, especially in the context of urban areas within Europe. This section reviews existing literature on satellite communication in disaster relief, the technical capabilities of Starlink, and prior uses of comparable systems for crisis situations. It establishes both the potential and the limitations of integrating such technology into Italy’s emergency communications framework.

Voigt et al. (2007) [27] emphasized the effective utilization of multi-source satellite data and advanced image analysis techniques for crisis and disaster mapping at pace. The German Aerospace Center (DLR), through its specialized unit ZKI, provided satellite-based crisis intelligence to support national as well as international emergency response operations. Through close coordination with government organizations, NGOs, and global satellite coordination systems, ZKI had facilitated real-time damage assessment and situation awareness. Through their research, they reviewed some case studies like the Indian Ocean tsunami, forest fires in Portugal, and earthquake devastation in Pakistan and demonstrated how satellite mapping could significantly contribute to accelerating and improving the accuracy of disaster relief activities [27]. Kose et al. (2012) [28] conducted a comprehensive review of how satellite communications may be utilized for emergency response and disaster management in areas where terrestrial networks are not available or are impaired. Their study reviewed the advantages of satellite systems, such as wide coverage, high reliability, and accelerated deployment, in providing efficient search and rescue coordination. Their study served as a source of inspiration to improve the preparedness and capabilities of disaster response units [28].

Xu et al. (2018) [29] presented the crowd lives-oriented track and help optimization system (CLOTHO), an Internet of Things (IoT)-based evacuation planning system to facilitate rapid and organized movement of crowds in emergencies. The system consists of IoT-based user-level information harvesting and cloud-based computing for near real-time decision support. CLOTHO naturally employs an Artificial Potential Field (APF) approach to dynamically guide evacuees based on environmental gradients. In the interest of coordination and psychological comfort, an augmented algorithm (APF with Relationship Attraction (APF-RA)) is also presented, wherein people having social relationships are encouraged to evacuate together as a group. Experimental simulations confirm that CLOTHO significantly improves evacuation speed, routing efficiency, and shelter capacity utilization and thereby contributes toward more effective and humane disaster response solutions [29]. Lourenco et al. (2019) [30] introduced a satellite data evacuation system aimed at post-disaster cases where information technology (IT) infrastructures on the ground, like data centers, may be jeopardized. Expanding on the software-defined networking (SDN) paradigm in satellite networks, they develop an algorithm that formulates transmission schedules to maximize the volume of critical data transferred from isolated systems to secure destinations. By comparing two constellations with differing sizes (66 and 720 satellites), their research highlighted the role of constellation design in determining evacuation efficiency in terms of buffer capacities and inter-satellite communication. Their approach also made it possible to do fair resource allocation using traffic engineering, outperforming existing delay-tolerant network methods by enabling the evacuation of up to 60% more data under certain conditions [30].

Potutan and Suzuki (2023) [31] investigated the systemic barriers that limit the effectiveness of disaster early warning systems (EWS) in reaching vulnerable populations across various Asian regions. Through case studies in Bangladesh, Bhutan, and Mongolia, their research discovered gaps in communication infrastructure such as lackluster internet and cellular coverage that hinder warnings from being disseminated speedily and accurately to impacted communities. They advocated for the integration of satellite-based technologies, namely the Quasi-Zenith Satellite System (QZSS), as a complement to ground-based EWS and enhancing evacuation readiness. They do, however, emphasize that technological interventions must be followed by directed policy reforms and operational improvements to ensure reliable and actionable warning delivery in high-risk societies [31]. Chen et al. (2024) [32] presented a systematic literature review of the evolution, technical architecture, applications, and broader implications of satellite internet. Carried out as per PRISMA guidelines, the study evaluates 69 relevant peer-reviewed articles from 2085 records described in SSCI and SCIE databases. Their review of the literature synthesized studies into three core perspectives and provided an integrated definition and technical model of satellite internet. In addition, they classified application domains and identified four key areas of potential influence. Their findings presented an integrated picture of ongoing progress and guided strategic planning for future digital infrastructure. They also stressed the need for expanded theoretical and quantitative research to improve judgment of satellite Internet’s strategic utility in international connectivity attempts [32].

Kagai et al. (2024) [33] investigated the limitations and potential of satellite-based communications systems in emergency scenarios, specifically in remote or infrastructure-deficient areas. Acutely conscious of the role played by communications in relief following disaster, they identified the inadequacy of traditional, infrastructure-dependent systems and the challenge of instigating redundant solutions for regions with no coverage. They provided a deployability framework for assessing current satellite communication technologies in terms of mobility, cost, power efficiency, and ease of deployment. Their findings indicated that while mobile and software-defined satellite systems have made advancements, no current solution currently addresses the needs of low-cost, low-power, and rapidly deployable emergency communications. Satellite phones, while closest to meeting these needs, are still too expensive and power-consuming for widespread use. Their study also expounded on the structural and economic impediments—such as spectrum licensing and hardware costs—that restrict broader accessibility and deployment in times of disasters [33]. Remili et al. (2025) [34] explored the evolving paradigm of “Tech Diplomacy”—a form of international engagement that extends beyond traditional state actors to include influential private technology firms. Prompted by the rising geopolitical significance of large tech corporations, their study argued for a reconfiguration of diplomatic practices to reflect the power dynamics introduced by Critical and Emerging Technologies (CETs). Referring to the case of Low Earth Orbit (LEO) satellite internet, they examined its geopolitical connotations, attendant challenges, and the inadequacy of existing diplomatic tools to address such complexity. They urged the emergence of a new diplomatic framework—grounded on technological sensibility and strategic engagement with the private sector—to safeguard national security, economic resilience, and technological sovereignty in the age of the digital [34].

Taken together, the reviewed studies provide valuable insights into emergency communication, yet they share common limitations. Many remain hazard-specific, focusing for instance only on earthquakes, hurricanes, or floods; others emphasize technical feasibility without addressing long-term integration into national systems. Very few combine empirical performance indicators with policy or organizational perspectives. This study addresses these gaps by analyzing how Starlink can be embedded into Italy’s multi-level crisis management, linking performance measures such as latency and throughput with strategic deployment and regulatory frameworks. By positioning our case study within these gaps, the paper demonstrates its unique contribution without reducing prior work to a simplified comparison matrix.

3. Overview of Emergency Communication Infrastructure in Italy

Effective communication infrastructure is the backbone of any disaster response system, particularly in nations such as Italy, where there is natural disaster threat in the form of earthquakes, floods, and landslides common to the country. The unique geographical position of Italy with high population density in cities and the presence of old infrastructure make the disaster management landscape in Italy particularly challenging [35,36]. Although the country has come a long way in creating a multi-level system of emergency response, its dependence on land-based communication networks leaves it critically vulnerable during crises. This is compounded by the fast rate at which disaster situations unfold, necessitating split-second decisions based on accurate, real-time information [6,37]. Traditional communication networks, including cellular networks and regional radio frequencies, often become overwhelmed or incapacitated during emergencies, resulting in coordination failures between responders and delays in issuing life-saving warnings to the public. Previous events have shown that these failures can exact a high price in human and economic terms, making a stronger and more adaptive approach a necessity [38]. As Italy is at the intersection of emerging technology and aging infrastructure, there is growing recognition of the need to integrate advanced solutions, such as satellite-based communications and flexible digital networks, into the existing system. This section reviews Italy’s emergency communication infrastructure’s current framework, deficiencies, and potential upgrades to address the demands of a changing risk landscape.

3.1. Structure of National and Regional Emergency Networks

Italy’s emergency response system rests on coordination among national authorities and central and regional as well as local levels. The system is based on the Protezione Civile (Civil Protection Department), which is tasked with coordinating commands for big emergencies, starting from preventive planning and risk analysis to coordinating rescues at a national level. Regional governments and municipalities handle on-the-ground implementation: equipping and deploying local response units, providing logistical support, and addressing affected citizens [39,40,41]. Communication within this multi-level framework is primarily grounded on ground-based networks: cellular phone infrastructure, allocated radio frequencies, and local alert systems. These media are acceptable under optimal conditions, but disparities in resources and locally configured technology can pose challenges—especially at remote sites where cellular coverage is poor or radio support is outmoded. Since crises evolve at a fast pace, tardiness in information exchange between field units and central headquarters can develop a mismatch between directions and eventually delayed responses [42,43].

Although formal protocols and institutional coordination mechanisms exist, field experience has shown that ground-based systems often lack the agility needed for immediate data exchange. To address this shortcoming, alternative technologies are under consideration, such as emergency satellite communications, flexible digital radio networks (e.g., TETRA: a network for emergency services, implemented as part of the PIT (Programma Interpolizie TETRA) project), and satellite-based internet messaging platforms. These solutions can serve as reliable communication bridges when terrestrial networks fail or become congested, ensuring that critical information continues to flow [44,45]. Aside from technological upgrading, continuous training of personnel and interagency exercises between national and local organizations are important. Drills help weaknesses in the communication process be pinpointed and addressed, equipping responders with the level of preparedness required in addressing actual crises [45,46]. By implementing an integrated system that leverages national capabilities as well as shifting to local requirements and environments, Italy can improve its capacity to respond to natural disasters as well as man-induced incidents more effectively and sustainably.

3.2. Communication Failures in Recent Disasters (Case Examples)

In the past ten years, Italy’s dependence on terrestrial communication infrastructure has repeatedly faltered during extreme natural disasters. For instance, in August 2016, a 6.2-magnitude earthquake leveled central Italy, and telephone and internet connectivity in towns like Amatrice and Norcia was out of order for several days owing to broken power cables and knocked-down telecommunication cables. Rescue teams had to rely on foot messengers and short-range radios, which significantly hindered relief efforts. Also, large-scale power outages within close proximity of the quake epicenter disrupted cellular networks and electricity at the time of impact [47,48]. In November 2019, Venice experienced unprecedented “acqua alta” flooding, during which submerged telecom cabinets and overwhelmed mobile networks hindered the delivery of emergency alerts and text messages to large portions of the population [49,50,51].

Similarly, during October 2021, torrential rain in Liguria produced 181 mm of rain over the course of a mere single hour, taking cell towers along with it and creating communication “dead zones” where both the residents and responders to emergencies no longer had access to vital aid [52,53,54]. A similar event occurred again in 2023 when torrents of water and widespread outages knocked regional radio broadcast transmitters offline, shutting down their broadcast of timely flood warnings [52,53,54]. Most recently, in March 2025, Tuscan and Ligurian storms destroyed some infrastructure and created difficulties for the evacuation of populations [55].

These serial failures can impact public confidence in formal warning systems so that increasingly ordinary citizens are turning to social media and word-of-mouth networks, which are prone to spreading misinformation. In an attempt to overcome such vulnerabilities, Italy is exploring internet options based on satellites, including partnerships with SpaceX’s Starlink and offers to create a national low-Earth orbit satellite constellation. While this work is ongoing, Italy is developing strong communications networks, such as TETRA digital radios and mobile ad hoc networks, deployable to the extent of constructing stand-alone layers of communications that are fully functional even during times when standard infrastructure is interrupted.

While these case descriptions clearly illustrate recurring communication breakdowns, the quantitative indicators reported in different sources—such as the number of affected users or the duration of outages—are inconsistent and vary widely across governmental and media reports. For this reason, exact figures are not reproduced here. Instead, the focus is placed on the qualitative evidence of systemic failures. This limitation emphasizes the need for more standardized reporting of communication impacts during disasters in Italy, which would enable stronger quantitative assessments in future research.

3.3. Gaps and Needs in Current Urban Evacuation Systems

Urban evacuation in Italian cities too often unfolds as a series of stop-gap measures rather than as a carefully choreographed sequence of actions. Although most municipalities maintain a formal evacuation plan, these blueprints frequently remain tethered to static maps, paper checklists, and legacy traffic-control protocols. As a result, decision-makers seldom enjoy a clear, up-to-the-minute picture of road capacities, shelter availability, or population movements—and are forced to issue evacuation orders “in the fog” of incomplete information. In practice, this means that buses and emergency vehicles can end up dispatched along clogged streets, digital signage can stay dark or display out-of-date routing advice, and alerts sent by text messages or social media channels arrive too late—or not at all—for elderly residents, low-income families, or non-Italian speakers [56,57,58].

To overcome these gaps, urban centers must layer in real-time data feeds that span every critical domain: live traffic speeds from GPS-equipped city buses; occupancy sensors in parking garages, stations, and emergency shelters; environmental readings from flood gauges and seismic monitors; and anonymized mobility patterns drawn from mobile-network analytics. When fused within a single command dashboard, these inputs allow traffic engineers and emergency managers to see emerging bottlenecks, predict which neighborhoods will hit gridlock next, and swarm response teams precisely where they are needed. Equally important is bi-directional communication with the public: smartphone apps and community Wi-Fi hotspots that can not only push evacuation routes in real time but also accept status updates from citizens—reports of fires, blocked streets, or injured neighbors—so that plans can adjust on the fly. Yet even the most sophisticated data platform is only as resilient as its connectivity. Terrestrial internet and cell towers may be crippled by earthquake tremors, landslides, or deliberate cyberattacks. Here, satellite-based internet and two-way satellite messengers offer a lifeline: they forge an independent network layer that remains online when ground cables are severed or radio repeaters fail. Some forward-looking pilots in Europe are already equipping municipal vehicles and portable command centers with phased-array satellite terminals, ensuring that video streams, GIS updates, and group-voice channels never drop—even in “communications blackout” scenarios [59,60].

Finally, technology alone cannot close the preparedness gap. Regular multi-agency exercises, such as those augmented by virtual-reality simulations of evolving disaster scenarios, enable emergency personnel internalize new workflows and stress-test the data pipelines. Public awareness campaigns, in multiple languages and across a range of media, teach families how to obtain apps or SMS-based alerting services prior to disaster. Through the combination of anticipation planning, real-time in-motion information, good communications, and regular training, Italy’s cities can reshape evacuation from frantic rush to governed, responsive evacuation, one which safeguards all of its citizens regardless of situations.

4. Technological Integration of Starlink in Urban Evacuation Frameworks

4.1. Communication Demands in Emergency Evacuation

In densely populated cities, emergency evacuations are complex, time-sensitive operations that depend greatly on the integrity and speed of communications networks. Natural disasters, industrial accidents, and human-made crises can quickly destabilize infrastructure, overwhelm emergency services, and create widespread confusion. In such cases, communication is not just a technical requirement but a critical pillar of operational effectiveness and public safety. Precise, usable information must flow quickly between headquarters, field responders, and civilians to ensure effective coordination [61,62]. Without a solid communication plan, even effectively developed evacuation plans will succumb to the vagaries of misinformation, delay, or chain of command break.

Also, urban citizens are diverse, varying in access to technology, language proficiency, and readiness levels. Therefore, communication systems must not only be technologically feasible but also inclusive and sensitive to the various user needs. They must be able to facilitate rapid outreach yet continue to work under physical duress, i.e., power outages or network breakdown. The system must also be scalable, allowing easy integration between local, regional, and national emergency agencies. As cities grow and face new risks—climate change to infrastructure vulnerability—the demand for robust, intelligent communication becomes more acute [63,64]. The goal is to build a communications system which, in addition to being excellent in normal operation, is stable under extreme duress. The primary requirements in such high-stress situations are [63,64,65,66,67]:

• Real-Time Information Exchange: Communication systems must transmit alerts, updates, and situational data almost instantaneously. This rapid flow of information is essential for coordinating emergency services and disseminating evacuation instructions.
• Robust and Redundant Connectivity: Centralized, traditional communication media will fail under disaster pressure either by physical destruction or network overload. Therefore, access to alternative pathways, such as satellite networks, ensures continuity when terrestrial infrastructures collapse.
• Decentralized Network Architecture: The application of a decentralized communications model helps to prevent the possibility of system-wide failures. In networks with numerous independent nodes, when parts of the network go down due to disaster, the network, in general, can still function.
• Integration with Multilevel Emergency Operations: Urban evacuations require a seamless interface between government agencies, emergency responders, and local populations. Enhanced communication mechanisms should allow hierarchical coordination so that directions do not lose information while being passed through various levels of management.

By meeting these requirements, emergency management can significantly enhance the efficiency of evacuation operations. Through ensuring that communication infrastructure is resilient, inclusive, and technologically responsive, decision-making can be accelerated and action unified between agencies and the public. This minimizes confusion, reduces response time, and allows for the critical transmission of instructions where and when they are needed most. Intensive communication is ultimately not merely an ancillary support mechanism but a strategic asset for saving lives and protection.

4.2. Satellite Internet Capabilities in Crisis Scenarios

In the case of large-scale crises, where ground-based communication infrastructure is the first to be impacted, internet via satellite enters the scene as the main solution to provide information continuity. In urban or peripheral areas of a crisis situation, the capability of providing and receiving information independent of ground networks can greatly enhance operating continuity [68,69]. LEO satellite constellations such as Starlink have revolutionized emergency communication by offering not only greater coverage but also increased performance in speed and responsiveness. These networks aim to run low-latency with high bandwidth and are therefore suited for real-time coordination and applications that involve heavy data. Moreover, their ability to be deployed rapidly—via mobile or portable terminals—enables them to provide the connectivity gap in disaster zones where traditional networks are out of reach because of physical damage or saturation [70,71,72]. Such flexibility is crucial to enabling first responders, relief coordinators, and decision-makers to remain connected and informed in real time. In addition to connectivity itself, satellite internet enables advanced data fusion platforms to marry sensor data, video in real time, and geospatial data. This yields significantly increased situational awareness and accelerated decision-making. As emergency situations further complicate themselves as time-sensitive and increasingly sophisticated, reliance on unfailing, stand-alone communications becomes not just helpful but necessary. The following are four main strengths which make satellite internet an asset to crisis response efforts:

• Low Latency and High Bandwidth

There are distinct trade-offs between transmission performance and reach at different satellite altitudes, such as LEO (Low Earth Orbit), MEO (Medium Earth Orbit), and GEO (Geostationary Orbit). Low Earth orbiting (LEO) satellites have unique benefits in emergency situations: ultra-low latency, high data throughput, and fast deployment using compact terminals [73,74,75,76].

These capabilities render LEO systems, like Starlink, ideal for real-time crisis response—allowing live video feed from drones, field command communication, and accelerated data relay even in infrastructure-degraded environments. GEO satellites, while ideal for mass broadcasting, have an idealized one-way space-path delay of about 240 ms and a typical end-to-end RTT (Round-Trip Time) of roughly 500–600 ms; this remains workable for voice/video in disaster operations, though less interactive than LEO. MEO systems fall in the middle in capability but lack the sort of responsiveness that is preferable in quickly evolving emergencies. Figure 1 pictures the differences between orbits graphically, while

Table 1. Functional Comparison of LEO, MEO, and GEO Satellites in Crisis Scenarios [77,78,79].

Criteria	LEO (e.g., Starlink)	MEO	GEO
Latency	Very Low (20–40 ms)—Ideal for real-time response	Medium (100–200 ms)—May hinder interaction	High (RTT typically ~500–600 ms; one-way space-path ~240 ms)—Not suitable for live services
Deployment Speed	Fast—Pre-deployed constellation, quick auto-pointing terminal setup	Moderate—Fewer operational options	Slower on site—Precise pointing and bulkier gear increase setup time (Lacks rapid deployability)
Terminal Portability	High—Lightweight, field-deployable	Medium—May require fixed ground station	Low—Bulky parabolic equipment required
Power Requirements	Low to moderate—Can run on solar	Moderate	High—Not suitable for mobile setups
Coverage Reliability	High—Global redundancy via constellation	Medium—Partial regional coverage	High—Fixed but wide area
Best Use Case in Disaster	Live drone feeds, VoIP, mobile field HQ	Navigation, backup comms	TV/radio alerts, passive updates only

draws comparisons regarding operational feasibility across all types of orbits. As an ensemble, evidence clearly leads toward LEO-based systems as being the best-fit solution for emergency connectivity, particularly in those instances where speed, mobility, and real-time coordination are critical mission requirements [73,74,75,76].

• Rapid Deployment and Operational Flexibility

In times of crisis, the ability to quickly establish communication links is invaluable. Satellite terminals are rolled out quickly, allowing connectivity where ground infrastructure is destroyed or where traditional networks are down. This capacity depends on the availability and setup of user terminals, and does not differ fundamentally between GEO and LEO systems.

• Resilience Against Infrastructure Failures

Since satellite communications are not bound to local physical networks, they continue to operate even if conventional systems experience power outages, natural disasters, or other forms of disruption. This makes them a safe backbone for emergency information networks.

• Enhanced Situational Awareness and Data Integration

Satellite communications allow for the operation of a range of advanced observation systems. These might involve real-time video from roving cameras, sensor arrays, and the use of drones to observe from the air. These allow emergency managers to continuously assess conditions and adjust plans based on up-to-date information.

Beyond these orbital distinctions, satellite internet technologies have several unique characteristics that differentiate them both from terrestrial systems and from legacy satellite communication. They provide global coverage that is independent of local ground infrastructure, ensuring service continuity even when cables, towers, or power grids are disabled. Their architecture enables resilience to localized failures, since a distributed constellation can reroute traffic dynamically. In addition, portable terminals make rapid deployment feasible, allowing emergency teams to establish connectivity within minutes of arrival. Finally, the use of dense LEO constellations allows a combination of low latency and high bandwidth that was previously unattainable with traditional geostationary satellites. In parallel, aerial platforms such as UAVs or HAPS can be deployed rapidly to complement satellite networks, with only a few units sufficient to cover large regions. These features, taken together, underscore the distinctive value of satellite internet as a backbone for crisis communication.

For clarity, the key empirical indicators can be summarized directly in the narrative. During the observed evacuation event in Italy, Starlink sustained average upload and download speeds of around 50 Mbps, with latency consistently below 200 ms. Those speeds were up to three times higher than the performance of earth-based networks in the region affected, which failed outright or operate at significantly reduced capacity. In addition, the resilience of service was confirmed by continuous operation during localized power outages and ground-network disruptions. Taken together, these results demonstrate that Starlink provided not only higher performance but also greater continuity of service, making it a viable complement to Italy’s existing emergency communication infrastructure.

Through these abilities, satellite internet enables crisis response agencies to operate at their best even in the most austere environments. It provides decision-makers with uninterrupted access to real-time intelligence, field data, and coordination platforms immune to weak ground infrastructure. Emergency operations thus become faster, quicker, and better-informed—reducing response time and enhancing the prospects of successful intervention and recovery.

4.3. Strategic Deployment of Starlink in Urban Environments

To integrate Starlink into urban evacuation networks requires a localized and comprehensive approach—particularly in countries like Italy, where densely populated historic cities, complex geographies, and ancient infrastructure combine to present unique hazards during emergencies. From the floodplains of Emilia-Romagna to the earthquake zones in central Italy, outages in ground-based communication networks are not only probable—in documented instances, they occur. In these contexts, the application of satellite-based communication systems is not only useful but de facto essential. Italy’s urban structure, with its narrow streets, vertical housing, and cultural heritage zones, is logistically unwieldy to conventional communication systems. In the event of major emergencies, including earthquakes, firestorms, or flooding, ground-based systems tend to fail, depriving emergency responders of useful coordination channels. Starlink’s decentralized design, deployability, and freedom from ground-based infrastructure provide a strategic solution for this shortcoming.

Nevertheless, productive use of Starlink within the Italian context requires more than technological preparedness. It requires tailor-fit integration with national emergency plans, local government frameworks, and energy resilience strategies. To move further forward to operational dimensions of this challenge,

Table 2. Strategic Applications of Starlink in Italian Urban and Emergency Scenarios.

Deployment Domain	Italian Urban Emergency Context	Strategic Response for Starlink Integration
Historical Infrastructure	Narrow streets, protected architectural sites, and limited rooftop access	Use lightweight, non-invasive terminals; prioritize mobile units and pre-approved sites
Seismic Risk Zones	Active faults in central and southern Italy with history of communication failure	Pre-position Starlink kits in seismic areas; integrate with regional civil protection plans
Power Grid Fragility	Aging infrastructure prone to blackout during storms or quakes	Equip terminals with solar/battery backups; deploy mobile energy kits
Multi-Agency Operations	Civil protection, fire brigade, police, and Red Cross often act in parallel	Develop interoperable Starlink channels with shared priority access protocols
Island and Mountain Regions	Geographic isolation limits terrestrial coverage (e.g., Sicily, Sardinia, Alps)	Use Starlink to bridge communication gaps where fiber or mobile networks are absent

presents a comparative assessment of spheres of deployment relevant to the role of Starlink in Italian urban emergency response capability.

As shown in Table 2, not all strategies are equal in feasibility or urgency. Pre-positioning Starlink terminals in seismic risk zones is the highest priority, since earthquakes have repeatedly caused widespread communication breakdowns in Italy. Strategies addressing power grid fragility are also critical, because outages during floods or storms often paralyze both terrestrial networks and emergency operations; here, the feasibility of integrating solar/battery backups is relatively high. By contrast, deployment in historical city centers is technically feasible but faces regulatory and logistical hurdles, meaning it may be a medium-term rather than immediate priority. Finally, bridging connectivity in islands and mountain regions represents a long-term but essential strategy for inclusiveness. Prioritization of this type underscores that integration of Starlink must be phased, starting from the most vulnerable points and highest operation return.

The strategic deployment problem is still the most serious: while the Starlink terminals are lightweight and rapidly deployable, their effectiveness in Italy depends on careful pre-positioning, redundancy planning, and multi-agency coordination. Ensuring robust service requires not only technical preparation—addressing line-of-sight constraints, weather-related vulnerabilities, and power independence—but also organizational readiness so that civil protection, fire brigades, and health responders can access shared channels in real time. By explicitly analyzing these challenges, this paper highlights that the successful adoption of Starlink is as much a matter of strategic planning as of technological capacity.

5. Opportunities and Limitations of Starlink in the Italian Context

5.1. Potential Benefits for Crisis Management

In comparative terms, Starlink demonstrates distinctive advantages when set against both terrestrial and legacy satellite systems. During recent Italian disasters, ground-based cellular and Wi-Fi networks often collapsed, while Starlink sustained average throughput of ~50 Mbps with latency below 200 ms. While GEO satellites are effective at broadcasting alerts, they usually have a delay of around 600 ms, which means they can be unsuitable for real-time coordination. MEO systems decrease this delay but still lack the responsiveness and portability required in fast-moving evacuation scenarios. Thus, Starlink’s low-latency, field-deployable terminals position it uniquely as a bridge between fragile terrestrial infrastructures and slower, less flexible satellite alternatives. Its limitations need to be considered at the same time: line-of-sight restrictions, weather exposure, and the utilization of specialized equipment can incapacitate performance in high-density urban areas or catastrophic storms. This comparative perspective underscores both the promise and the boundaries of Starlink as a strategic complement, rather than a replacement, within Italy’s emergency communication framework.

This study contributes uniquely by situating Starlink within Italy’s layered emergency management system, demonstrating the necessity of integrating satellite internet not only as a backup technology but as a proactive enabler of resilience. Unlike general analyses, our work specifies how Starlink can be embedded in the Italian context of dense historic cities, fragile power grids, and multi-agency operations. This integration is not optional but necessary, given repeated failures of terrestrial systems in recent disasters.

Starlink offers transformative potential for emergency communication, particularly in cases where terrestrial infrastructure is damaged, overloaded, or absent. Its low-latency connectivity, rapid deployment ability, and independence from ground systems make it a resource of strategy in disaster relief operations. Italy needs such flexibility to close the long-standing communication gap, as urban concentration in the north intersects with rural dispersal in the south and on the islands.

The system’s scalability allows it to support an immense variety of disaster scenarios, either localized events like landslides or mass disasters like earthquakes or floods. Additionally, Starlink can facilitate real-time data sharing, enabling high-bandwidth applications like live environmental monitoring, aerial reconnaissance, and inter-agency coordination [80,81,82]. All these technological features are in accord with the demands of modern crisis management, where information flow is as critical as logistics. Properly integrated into Italy’s national emergency strategies, Starlink could represent a substantial step forward in enhancing operational responsiveness and resilience.

5.2. Technical and Environmental Constraints

Despite its advantages, Starlink implementation faces with different technical and environmental concerns that must be carefully assessed during planning [83,84,85,86]. The system’s performance depends heavily on unobstructed line-of-sight to the sky, which can be hindered in densely built historical city centers or mountainous regions—both of which are common across Italy. Severe weather—such as snow, fog, or storms—can temporarily degrade signal quality. The reliance on specialized equipment presents additional logistical hurdles, especially during the early hours of an emergency. User terminals, power sources, and properly aligned antennas are required, and transporting or installing these in affected zones can be time-consuming. Satellite signals may also suffer from electromagnetic interference or congestion in certain high-risk areas. Moreover, the constellation requires ongoing maintenance and software updates, which necessitate international coordination and technical support [83,84,85,86]. These layered constraints make it essential to integrate Starlink as a complement—not a replacement—to existing systems, supported by redundancy planning and tailored deployment protocols.

Generally, these layered constraints can be grouped to five main categories, as shown in

Table 3. Technical Constraints of Satellite Communication in Emergency Scenarios.

Constraint Type	Technical Description	Impact on Emergency Operations
Line-of-sight dependency	Requires unobstructed sky view for optimal satellite connection	Limited use in dense urban or forested areas
Severe weather interference	Snow, rain, or fog can reduce signal quality or cause temporary disconnection	Slower communication during critical response periods
Specialized equipment needs	Requires terminals, power supplies, and precise antenna alignment	Logistical challenges during rapid deployment
Maintenance and updates	Needs continuous software and system upgrades	Risk of service degradation without timely updates or support
Signal interference	Vulnerability to electromagnetic disruptions or signal congestion	Reduced reliability in high-traffic or industrial zones

, which lists each environmental or technical constraint and how it affects operations during emergencies. Identification and minimization of these issues are essential to ensuring reliability and curtailing potential service disruptions in Italy’s complex emergency environments.

The constraints summarized in Table 3 each carry direct implications for emergency operations. Line-of-sight dependency means that in dense historical centers, connectivity could be intermittent, potentially delaying evacuation alerts. Severe weather interference can reduce transmission quality at precisely the moment when rapid decision-making is most needed, resulting in slower dissemination of orders. The necessity for high-tech equipment creates logistical bottlenecks in the initial hours of a crisis, when each minute matters. The requirement for constant repair and upgrading can similarly render Italy’s emergency response susceptible to postponement on the basis of external technical knowledge. Finally, susceptibility to electromagnetic interference can reduce reliability in industrial zones, where communication stability is essential for hazardous-material response. Overall, these impacts highlight that while Starlink provides valuable resilience, it must be integrated as part of a layered system with redundancy planning.

5.3. Regulatory and Infrastructural Challenges

Integration of Starlink into Italian emergency systems entails legal and infrastructure integration presenting a different type of challenge. As a foreign-controlled privately owned satellite system, operation over Italian airspace implies regulatory compliance and adherence to national data protection and cybersecurity legislation. These legal processes might create delays or limit activities in sensitive locations, like border zones or areas of vital infrastructure. Interoperability with existing emergency communication systems is another key concern. Starlink must be integrated with public safety networks, command centers, and local emergency protocols without a hitch. This involves not only technological breakthroughs but institutional coordination at the municipal, regional, and national levels. Compliance with EU digital sovereignty policies also renders integration of non-European installations into state-controlled systems more challenging. Unless these regulatory and infrastructural barriers are removed, the potential of Starlink for Italy’s crisis management remains untapped.

Beyond general considerations, the regulatory debate is shaped by concrete European and national provisions. At the EU level, the 2023 “Secure Connectivity” initiative and broader digital sovereignty agenda emphasize the need to balance reliance on private non-European satellite constellations with strategic autonomy. Spectrum management remains under both ITU coordination and EU regulatory harmonization, that directly affects Starlink’s operating conditions. Additional limitations are placed in Italy through national law on foreign-controlled critical infrastructure and personal data protection, requiring subtle coordination between Starlink civil protection uses and existing cybersecurity directives. These layers illustrate that integration is not only a technical matter but also a process of legal navigation within multi-level governance [87].

5.4. Financial Implications and Funding Strategies

The large-scale adoption of satellite internet technologies such as Starlink in Italy involves significant financial considerations. The upfront cost of acquiring user terminals (satellite dishes and related hardware) is currently estimated at around €350–€600 per unit, with monthly subscription fees ranging, depending on service level and potential institutional agreements. For emergency management agencies seeking to deploy hundreds or thousands of units across urban centers, these expenses can quickly accumulate, representing a substantial investment compared to traditional communication infrastructure.

To address these financial challenges, several funding strategies could be considered. National and regional governments may allocate dedicated budgets for digital resilience and disaster preparedness, potentially supported by European Union recovery funds or civil protection grants. Public–private partnerships could also be leveraged, allowing technology providers, telecom operators, and municipalities to share costs and expertise. Furthermore, pilot projects and phased rollouts may help distribute initial capital expenditures over several fiscal years, making widespread adoption more financially manageable.

A thorough cost–benefit analysis—factoring in potential reductions in response time, improved public safety, and savings from avoided infrastructure failures—can help justify such investments to policymakers. Ultimately, integrating satellite internet solutions into Italy’s emergency response system will require not only technical planning, but also a robust financial framework and multi-stakeholder collaboration.

6. Toward Resilient Emergency Communication Systems

In an era where steadfast connectivity becomes a vital lifeline during emergencies, the evolution of resilient communication systems is paramount for successful crisis management. This section explores the fundamental ideas that form the basis of modern emergency communication strategies, while simultaneously acknowledging the transformative potential of satellite technologies like Starlink in Italy. As natural disasters, cyber attacks, and unforeseen crises increasingly expose the weaknesses of traditional infrastructures, the need to rethink how important information is disseminated and coordinated has never been greater.

This discussion broadens the perspective on how adaptable, secure, and robust communication systems can elevate Italy’s crisis response mechanisms. Emphasizing the convergence of new satellite internet technologies, it underscores the potential of Starlink to be a game-changing tool in extending connectivity where conventional networks fail. Through the encouragement of collaborative solutions and leveraging technological innovation, this study lays the groundwork for disrupting current paradigms. This study paves the way for a methodical analysis of policy modifications and integration tactics, which will harmonize new satellite systems with existing infrastructure, resulting in a comprehensive, future-ready emergency response plan for Italy.

6.1. Policy Implications and Strategic Recommendations

To be in a position to benefit from such technological advancements like internet services based on satellites like Starlink, Italy will have to go through a complete overhaul of its emergency communications regulations. This process requires a review of existing legal, regulatory, and operational frameworks to ensure that they are adaptable and robust enough to integrate satellite-based services as essential components of disaster readiness. Through formal incorporation of satellite connectivity into the planning of their nations, policymakers will more effectively be in a position to counteract effects of unexpected crisis and extreme environmental conditions as well as contribute toward overall national capacity.

Strategic collaboration between government bureaus and corporate entities, by way of such examples as securing contracts with the providers like SpaceX, will become essential in bringing about timely deployments and regular capability for operations. In addition, revising procurement procedures and developing innovative funding mechanisms can facilitate the adoption of state-of-the-art emergency tools. Such policy reforms should align with broader national interests by emphasizing flexibility and accountability in emergency planning. To foster a resilient emergency communications environment, policymakers should conduct continual reviews and adapt these measures to ensure alignment with emerging technological standards and evolving societal needs, thereby safeguarding national interests.

The application of these recommendations applies directly to Italy’s multi-level emergency system. For example, Protezione Civile and municipal authorities can include Starlink-based connectivity into regular evacuation drills, enabling validation of interoperability and reliability in practice. Early EU-supported pilot projects in disaster communication already show the feasibility of deploying portable satellite terminals in local command centers. These initiatives serve to validate the effectiveness of our proposed strategic initiatives in that satellite internet can complement existing terrestrial infrastructure rather than replacing it. In this way, the policy framework we outline is not abstract, but directly applicable and already undergoing preliminary implementation within both Italian and European contexts.

6.2. Integration with Existing Emergency Protocols and Future Research Direction

• Integration with Existing Protocols

Successful integration of Starlink into Italy’s emergency systems will be contingent upon its compatibility with the hierarchical structure of the country’s crisis management system. Italy’s emergency protocols rely on coordination between local, regional, and national institutions with various mandates. Some of the effective recommendations to ensure integrated integration are as follows:

Interoperability: Satellite communications of Starlink will be interoperable with existing infrastructures, from radio networks to terrestrial Internet and command-and-control systems. There has to be a design of consistent communication protocols for data transfer between agencies and between platforms.

Pre-positioning Terminals: Positioning Starlink terminals in high-risk areas, including seismically active areas, floodplains, and isolated villages, can offer immediate connectivity when disaster strikes. The terminals need to be covered under Italy’s regional civil protection plans to enable rapid activation.

Multi-agency Coordination: Shared access procedures for the Starlink service among emergency response agencies, i.e., civil protection forces, fire services, and health responders, can simplify communication and decision-making during evacuations.

• Future Research Directions

Future research needs to focus on releasing Starlink’s complete potential to serve Italy’s special emergency needs and overcoming technical and operational constraints. Some of the key areas to investigate are as follows:

Performance in Diverse Geographies: Measuring Starlink’s signal strength and bandwidth availability in Italy’s varied geography, such as mountains, coastal city centers, and densely populated historic city centers, is important. This research can identify geographic limitations and recommend against them, such as the application of mobile ground stations or the optimization of antennas.

Sociotechnical Acceptance: Public acceptance and emergency response acceptance of Starlink-based communication systems need to be understood in order to deploy them. This requires research on user training, public awareness campaigns, and behavioral studies to instill trust in satellite-based systems and alerts and make them accessible and actionable.

Hybrid Communication Models: Examining the integration of Starlink with complementary technologies, including 5G networks, IoT-based sensors, and drones, can devise hybrid communication models that can provide enhanced situational awareness and data dissemination. These systems can facilitate critical tasks such as real-time evacuation monitoring, resource allocation, and environmental sensing.

Policy and Regulatory Frameworks: Future studies will determine the organizational and regulatory changes needed to enable Starlink integration. This includes the distribution of the spectrum, cybersecurity, and regulation compliance with EU digital sovereignty policy, ensuring that satellite internet integrates within Italy’s operational and legal environments.

Another point for future study is the role of non-terrestrial networks (NTNs) within 5G, as formalized in Release 17 of the 3GPP standards [88,89,90]. This approach extends cellular networks to include LEO, GEO, and HAPS platforms, with the possibility that certain 5G devices with NTN support could directly access satellite services. While large-scale deployment is still emerging—and practical performance depends on spectrum, device capabilities, and latency, especially for GEO—such integration may significantly enhance the resilience and reach of communication during disasters and should be carefully evaluated in future field studies.

7. Conclusions

This study examined the role of Starlink’s satellite internet in sustaining Italy’s emergency communications and urban evacuation frameworks. The study confirms that low-latency, rapidly deployable satellite systems provide a vital alternative when terrestrial infrastructure is damaged or overloaded. In disasters where minutes can determine life or death, the ability to maintain uninterrupted communication channels is not only advantageous but urgent.

We draw three takeaways. First, satellite links keep operations moving by enabling immediate coordination among civil protection teams, first responders, and the public. Second, results improve when gear is staged in advance at high-risk sites—seismic corridors, floodplains, and remote settlements. Third, integration has limits that must be planned for: line-of-sight needs, exposure to severe weather, and dependence on dedicated hardware, alongside compliance with EU spectrum rules and Italian cybersecurity requirements that demand organizational adjustments.

At the same time, it is important to recognize that Starlink is not the only option available to decision-makers. In disaster settings, Civil Protection can pursue two complementary routes. One is to pre-stage Starlink terminals so authorities retain a dedicated, resilient channel if terrestrial systems fail. The other is to fly UAVs with 5G backhaul to quickly restore cellular coverage without asking citizens to obtain Starlink subscriptions or special terminals. Presenting both approaches side by side reduces technological bias and emphasizes that Italian authorities may choose the most suitable solution depending on the context, resources, and regulatory environment.

Policy and research should now move on funding models for broad rollout, weaving Starlink into multi-agency evacuation exercises, and scaling pilots to test performance across varied Italian environments. Taken together, these steps can shift satellite internet from promising add-on to a stable pillar of national crisis response. Adding connectivity to this goes hand-in-hand with saving lives, and early adoption of robust satellite systems is an imperative priority for the nation’s future resilience.