TR-060, the East Bay Hills Fire Oakland-Berkeley, California, October 1991* United States Fire Administration Technical Report Series

TR-060, The East Bay Hills Fire Oakland-Berkeley, California, October 1991* United States Fire Administration Technical Report Series The East Bay Hills Fire Oakland-Berkeley, California Federal Emergency Management Agency United States Fire Administration National Fire Data Center United States Fire Administration Fire Investigations Program The United States Fire Administration develops reports on selected major fires throughout the country. The fires usually involve multiple deaths or a large loss of property. But the primary criterion for deciding to do a report is whether it will result in significant "lessons learned." In some cases these lessons bring to light new knowledge about fire -the effect of building construction or contents, human behavior in fire, etc In other cases, the lessons are not new but are serious enough to highhght once again, with yet another fire tragedy report. The reports are Sent to fire magazines and are distributed at national and regional fire meetings. The International Association of Fire Chiefs assists USFA in disseminating the findings throughout the fire service.. On a continuing basis the reports are available on request from USFA; announcements of their availability are published widely in fire journals and newsletters This body of work provides detailed information on the nature of the fire problem for policymakers who must decide on allocations of resources between fire and other pressing problems, and within the fire service to improve codes and code enforcement, training, public tire education, building technology, and other related areas The Fire Administration, which has no regulatory authority, sends an cxperienced fire investigator into a community after a major incident only after having conferred with the local tire authorities to insure that USFA's assistance and presence would be supportive and would in no way interfere with any review of the incident they are themselves conducting. The intent is not to arrive during the event or even immediately after, but rather after the dust settles, so that a complete and objective review of all the important aspects of the incident can be made Local authorities review USFA's report while it is in draft The USFA investigator or ream is available to local authorities should they wish to request technical assistance for their own investigation. This report and its recommendations were developed by USFA staff and by TriData Corporation, Arlington, Via, its staff and consultants, who are under contract to assist the Fire Administration in carrying out the Fire Reports Program. The United States Fire Administration greatly appreciates the cooperation and information received from Fire Chief P. Lamont Ewell and many of the officers and firefighters of the Oakland Fire Department those who provided special assistance to USFA's investigation arc listed on page one of this report Appreciation also goes to Fire Chief Gary Cates, Berkeley Fire Department; Assistant Chief Bill Cullen, Contra Costa County Fire Protection District; the California Department of Forestry and Fire Protection; the California Governor's Office of Emergency Servics; and Mr. Bill Patterson, Federal Emergency Management Agency (Region IX Office). Assistance with the invesngation was provided by Mr. Hugh Graham. For additional copies of this report write to the United States Fire Administration, National Fire Data Center, 16825 South Seton Avenue, Emmitsburg, MaryIand 21727. The East Bay Hills Fire Oakland-Berkeley, California (October 19-22, 1991) Investigated by: J. Gordon Routley This is Report 060 of the Major Fires lnvestlgatlon Project conducted by TrlData Corporation under contract EMW-90-C-3338 to the United States Fire Administration, Federal Emergency Management Agency. Federal Emergency Management Agency United States Fire Administration National Fire Data Center TABLE OF CONTENTS OVERVIEW OF THE FIRE 2 Summary of Key Issues 4 Location 5 BACKGROUND 8 Climatic Conditions 8 Vegetation 9 Land Development on the Hills 10 Burning Characteristics 11 Ignition Sources 15 Previous Fires in the East Bay Hills 16 Other Wildland-Urban Interface Fires in California 17 Regulatory Efforts 18 Fire Protection Agencies 20 HOW THE FIRE STARTED 22 Point of Origin 22 Saturday, October 19th 22 SUNDAY, OCTOBER 20th 24 The Restart 24 Major Flare-up 26 Communications Problems 30 Critical Period 31 Totally Out of Control 33 Mutual Aid Begins to Arrive 34 Lives Saved and Lost 36 All Forces Retreating 40 Fire Jumps Freeway 40 Hiller Highlands 41 Berkeley Front 41 California Department of Forestry Operations 45 Additional Strike Teams 47 Claremont Hotel 48 New Outbreaks 49 Strategy --Continuing Battle on Multiple Fronts 50 Evacuations 52 Tactics 53 Assessment of the Situation 54 Unified Command Structure 56 Additional Resources Ordered 58 Wind Changes 58 MONDAY THROUGH THURSDAY 61 Losses 62 ANALYSIS 65 Fire Risk 65 Fire Origin 66 Fire Characteristics 66 Wildland-Urban Interface Characteristics 68 Initial Response 69 Training and Preparation 69 Incident Management 70 Communications 75 Public Information 81 Mutual Aid 82 Volunteer Response 84 Aircraft Operations 85 Water Supply 87 Stress 88 Firefighter Safety 91 Emergency Medical Services 93 Evacuation 95 LESSONS LEARNED 96 APPENDICES 100 A. Reference Publications B. East Bay Hills Fire Chronology C. Contra Costa County Summary D. Strike Teams E. Photographs The East Bay Fire Oakland-Berkeley, California October 19-22, 199l Investigated by: J. Gordon Routley Local Contacts: P. Lamont Ewe11 Director of Fire Services Assistant Chief Don Matthews Assistant Chief John Baker Assistant Chief Andrew Stark Battalion Chief Neil Honeycutt Battalion Chief Manual Navarro Battalion Chief Reginald Garcia Captain Donald Parker Oakland Fire Department 1605 Martin Luther Ring Oakland, California 94612 Chief Gary Cates Battalion Chief Paul Burresteros Berkeley Fire Department Assistant Chief Bill Cullen Contra Costa County Fire Protection District California Department of Forestry and Fire Protection Governor's Office of Emergency Services Bill Patterson Federal Emergency Management Agency Region IX Page 1 OVERVIEW OF THE FIRE The largest dollar fire loss in United States history occurred in the East Bay Hills, within the California Cities of Oakland and Berkeley, between October 19 and 22, 199l. Twenty-five lives were lost and more than 3,000 structures were destroyed by a wildland-urban interface fire in one of the most heavily populated metropolitan areas of the North American continent. The fire completely overwhelmed the firefighting forces of the area, consuming everything in its path, and was only stopped when the Diablo wind conditions abated. The wind had threatened to drive the fire across the entire City of Oakland The factors that set the stage for this disaster were identified long before the fire occurred, and the potential consequences had been predicted by fire officials. Nevertheless, their warnings went unheeded, and the measures that could have reduced the risks were not implemented. More than $1 billion in damage resulted from a fire that exceeded the worst expectations of the most concerned fire professionals. It was a fire that demonstrates how natural forces may be beyond the control of human intervention and should cause a renewed look at the risk of wildland-urban interface fire disasters. Large areas of California are known to be critically vulnerable to wildland- urban interface fires due to the development of urban areas in locations that are subject to extreme fire hazards created by climate, terrain, and natural fuels. Several major fires have occurred over the years, including one in 1970 that involved a large portion of the area burned in this incident. The coastal region was particularly vulnerable in the fall of 1991, after five years of drought, several months with no recorded precipitation, and reduced efforts to control wildland interface hazards due to state and local budget limitations. The key ingredient in this incident was the Diablo wind condition, which combined with the other critical fire risk factors to create an irresistible destructive force. On the following page is a map of the area of Oakland where the fire occurred. This same map is repeated several times later in the report overlaid with arrows illustrating the direction and development of the fire at various stages. A regional map appears on page 6. This fire was originally labelled as the "Tunnel Fire." It is now being described as the East Bay Hills Fire in most reports. Page 2 Page 3 SUMMARY OF KEY ISSUES Issues Comments Location Wildland-urban interface area., Oakland-Berkeley Hills, California Risk Factors Extreme fire risk created by five year drought, low humidity, and Diablo winds; highly combustible natural fuels, inadequate separation between natural fuels and structures, unregulated use of wood shingles as roof and siding material; steep terrain, homes overhanging hillsides, narrow roads, limited access, limited water supply. Mitigation Efforts Previous fire experience identified hazards. Risk reduction measures had been studied and recommended for several years, but not implemented. Cause Strong winds caused rekindle of grass fire from previous day, accelerated by wind. Crews were on scene overhauling when fire erupted. Cause of original fire was undetermined. Response Largest response ever recorded. Massive mutual aid provided by 440 engine companies and more than 1,500 firefighters. Damage Extent 3,354 structures destroyed, 1,500 acres,

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