Social Response

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Initial Response

    Initial Response- The first response to the Oakland/Berkeley fire of 1991 came at 10:40 a.m. when engine 27 from the Oakland fire department responded to a call of a hot spot at 7290 Marlborough Terrace above the Caldecott tunnel. The hot spot was a result of the previous days spot fires that resulted from controlled burns in the area. Between the time of 10:40 a.m. and 10:50 a.m. the wind velocity increased, and several additional flare-ups were observed. It was at 10:50 am that engine 19 was called back to the scene where numerous other rekindlings had occurred due to strong offshore winds and warm weather. The rekindlings and spot fires began to grow at an unprecedented pace at this moment by jumping fire lines, and at 10:59 a.m. engine 19 requested help from the California Department of Fire. At 11:02 a.m. there was a requested 2nd alarm and police assistance for traffic and crowd control. The 2nd alarm units were directed to respond to 7140 Marlborough terrace at the top of that hill. At 11:04 a.m. the assistant chief called for a 3rd alarm and deemed the fire “out of control” at this juncture.
   
    At 11:20 am the fire battalion chief requested a fourth alarm, and a set-up of a fire communications center where different units could be directed and mutual aid could be set up for different agencies. Shortly after, the San Francisco and Berkeley fire departments were called in to assist with the fire. All of the fire departments involved worked independently of one another and received their directions from the fire communications center, which was run by the California Department of Fire and the Oakland Fire Department.
 

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Communication/Response Problems

    It was at the time between 11:19 and 11:25 that the fire situation became critical just as the fire communications center was set up. The situation at the fire communications center became out of control because telephone lines rang continuously from concerned citizens, media, and fire battalions. Under these extreme conditions, there were several miscommunications and delays in processing information and requests. Miscommunications included sending different fire units to the wrong areas of the fire. These units had no direct radio contact with other command structures which were essential for fighting this fast moving fire. It was difficult to determine resource deployment because so many units were engaged in actions that were unknown to the command post. These miscommunications directing the different fire units resulted in a critical shortage of resources, including water, drop helicopters, and much more. As soon as any fire unit or engine would arrive at a location there were multiple assignments waiting for them because of the massive extent of the fire and the misallocation of firefighting resources.

    Other than communication bottlenecks that resulted from a lack of coordination between units; there were also response problems that existed because of a lack of knowledge about wildfire suppression. Wildfire suppression was a field that was not considered a major area of emphasis for the Oakland Fire Department. Many officers had developed certain knowledge of wildfire suppression but it was not something that they worked at in exercises or in drills. The lack of knowledge about wildfire terminology resulted in the delayed sending of air tankers which further hindered the firefighting process.
   
    The communication/response problems were the worst element in the coordination aspect of fighting this fire. The supervisor of the fire communications center was responsible for making notifications to designated individuals and agencies on multiple alarms and requesting mutual aid from all of the adjoining jurisdictions.  The supervisor’s job also entailed communicating with worried citizens, giving information to the media, and talking with and sending out multiple agencies.  The communication problem was only compounded when it was realized that there was a shortage of command officers that were actually in contact with the fire communication center, and much of the coordination was being done through inferior ranking officers.

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Set-up/Transportation problems

     In addition to the many communication problems that took place, there were many other difficulties in getting the fire engines to the origins of the fire. When other agencies were called in to help in fight the fire, blocked roads and traffic congestion played a major role in delaying the firefighting effort. When fire companies from the San Francisco Fire Department tried to set up a staging area near Golden Gate and Acacia their effort was delayed for several minutes because of blocked roads due to construction during the week, and major traffic congestion. The efforts of many fire companies were also delayed when residents of the Oakland hills were fleeing their neighborhoods in a panic, which left traffic jams all around the hills leading up to the fire.

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Fire Efforts/Evacuations

    The evacuation efforts of the fire were conducted primarily by Oakland and Berkeley police officers. The areas that were identified for evacuation were expansive and large because there was no assurance that the fire could be stopped or that the wind would continue to push it in the same direction.  In fact, the evacuation effort ended up moving 20,000 to 30,000 people out of the Oakland hills. Unfortunately, 25 people perished in the fire because of its rapid speed and strength.
    
    The fire efforts in this event were mostly in disarray because of the many communication problems that resulted from the main fire command center. The fire company officers did report that their efforts were most successful when they could group several companies together and make a coordinated effort to save homes. The problem with this scenario was that there were so many flare-ups it was hard getting companies together to make a coordinated effort to save homes, in conjunction with the many communication problems.

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Post Fire/Lessons Learned 

    The most significant factor that should be recognized from this incident is that the fire was beyond the capability of fire suppression forces to control. Even if the Oakland Fire Department did not have communication problems or bottlenecks, the situation still would have been dangerous. The conditions on October 20, 1991 were so prime for a nasty wildfire that virtually no measures would have helped in mitigating the extent of this fire.
   
    The biggest lesson that was learned in this fire is that mitigation factors should be enacted well before an event like this happens. Things like clearing of dead wood, cutting of tall grass and brush and regular controlled burns should be a regular occurrence in areas that are susceptible to raging wildfires. The second biggest lesson that was learned is that there should be an efficient fire communications center, where different elements are instructing different agencies to their job and helping those agencies communicate information with one another. There should also be adequate access to roadways for emergency vehicles and exit roadways for residents. Transportation out of the Oakland hills contributed to traffic jams and roadblocks that inhibited the fire fighting effort.  The fire departments in Oakland, Berkeley and all surrounding areas provided a valuable lesson by demonstrating the need for risk assessment and planning for disasters that overwhelm emergency response systems.
   
    There were many other elements that the Oakland fire department has learned as a result of the 1991 Oakland hills fire. An especially important element was the provision for adequate water storage and distribution systems for fire protection services. There were water issues in the 1991 fires that resulted in complications for many of the engine companies in fighting the fire to its full potential. There must also be modern communication equipment in place in order for there to be a sufficient attempt at fighting the fire.
   
    The Oakland fires of 1991 taught the firefighting community a lot about mitigating hazards to the public. The main issue of mitigating wildfire danger deals with building dense settlements in wildfire prone areas. The denser the settlements in these areas, the more powerful and fast moving these fires will become as the houses act as fuel for the fire.  Clearing dry brush, dead wood and using controlled burns are also methods of mitigating against wildfire disaster. An efficient communication system must also be in place in order to handle the vast responsibilities of directing different agencies to their respective locations in the event of another major wildfire. The firefighting community has learned many lessons since the Oakland 1991 fires.

 

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Recommendations

    Numerous professional and journalistic assessments were conducted after the East Bay Hills fire, as were those by governmental agencies. A Task Force on Emergency Preparedness and Community Restoration, made up of city and county officials, utilities, university faculty, local businesses, and representatives of the fire victims, was established by the mayors of Oakland and Berkeley a week after the fire. “This group was given eight weeks to prepare a detailed report that would guide recovery of the burned area and would protect other parts of the East Bay Hills” (Mitchell, 1999).

    The Task Force, divided into five groups, analyzed Emergency Preparedness, Communications, Forestry and Vegetation, Infrastructure and Development; and Planning, Zoning, and Design. The following, Table 10.9, is a list of Key Proposals and status,1994, as published in (Mitchell, 1999).

Proposal
Status
Improve local emergency services through a major bond issue for new radio communications and fire protection equipment.
Adopted
Increase the training and use of community volunteers to identify fire hazards and fight small fires.
Adopted
Revise building codes to require more fire-resistant building materials.
Adopted
Establish a fire protection district for the fire danger zone from funds allocated for fire prevention activities.
Adopted
Relocate some fire equipment to fire-prone areas.
Adopted


Require all homes in designated fire hazard zones to remove wood roofs, use prescribed landscaping methods and materials, and incorporate fire control methods.
In Progress
Move public utilities underground in the fire area, and improve water supply to the area.
In Progress


Revise building codes to require the use of sprinklers.
Not Adopted
Improve street access for firefighting equipment.
Not Adopted
Limit the density of homes in fire-prone areas.
Not Adopted

Source: Task Force on Emergency Preparedness (1992) as summarized in Blakely (1991). Status based on estimates by Mitchell, 1999.

   In 1993, Oakland voters approved an Oakland Hills Fire Prevention and Suppression Benefit Assessment District.  The district includes all of the hill areas in the city of Oakland.  Each of the 20,000 real estate parcels included in the district will be assessed initially at US$75 per year, with a potential increase to a maximum of US$300 per year.  "This revenue will be used primarily for reducing the amounts of hazardous fuels on public and private lands; among other means, they will continue to employ herds goats to graze public lands within the district.  The program will fund inspections of private lands to ascertain violations of the Uniform Fire Code and will generally strengthen the capability of Oakland to combat urban/wildland fires" (Topping, 1992) as cited in (Mitchell, 1999). 

     It should be noted, “the most prominent of the non-federal assessments, the Report of the Task Force on Emergency Preparedness and Community Restoration, articulated dozens of sound hazard-mitigation measures. But the ultimate mitigation measure was not mentioned; that is, the alternative of not rebuilding the Hills, or at least of reducing density and widening streets. The modest efforts to change land-use and building patterns in the Hills after the fire were ineffectual. Streets remain narrow and homes have become larger, albeit roofed with tile rather than shingle” (Mitchell, 1999).

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map of command post locations