Oakland’s Wildfire Preparedness: Good Vegetation Management but Emergency Access Needs Improvement

Recommendations 1

• R7

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  called for the city council to determine if parking in the Oakland Hills that obstructed road access was an enforcement priority, and if so, whether an enforcement program (with community input) should be implemented. Car Illegally Parked in the Oakland Hills 69 2024-2025 Alameda County Grand Jury Final Report ______________________________________________________________________________________________________________ In December 2015, a follow-up audit found that the city had taken insufficient action. It concluded: The large number of resident and visitor vehicles in the Oakland hills creates unsafe congestion and, at times, possibly illegal parking situations including parking on streets too narrow to accommodate an emergency vehicle and parking in red “no parking” zones. Parking infractions are not regularly cited by Parking Enforcement which, according to the Fire Department, has indicated that the Oakland hills neighborhoods are not a priority parking enforcement area. Despite that strong recommendation, the city auditor again found in November 2017 that the illegally parked vehicles blocking Oakland hills roads was still a problem. That report, entitled, “Second Follow-up: Oakland Fire Department Vegetation Inspection Audit” specifically noted: OFD or Parking Enforcement [the predecessor to the Oakland Department of Transportation] must find a workable solution for the parking problem in the Oakland hills … Narrow roadways that quickly became blocked during the evacuation [in the 1991 Oakland-Berkeley Tunnel Hills Fire] contributed to the tragedy, as these streets were, for many residents, the only exit routes out of the area. Oakland still has not made sufficient progress in finding a “workable solution.” Although Oakland’s 2023-2024 Local Hazard Mitigation Plan Report touted “enhanced coordination with Department of Transportation and Oakland Police to enforce parking restrictions on Red Flag Days,” nearly every witness the Grand Jury interviewed questioned the adequacy of this enforcement. Another current concern is efforts to increase housing density in high fire risk areas, which would exacerbate the problem. The Grand Jury learned from the Parking and Mobility Unit in Oakland’s Department of Transportation (OakDOT) that it had arranged for the installation of additional “No Parking” signs in the hills in 2017, in response to an initiative of the Oakland Wildfire Prevention Working Group. Still, Oakland does not have any areas that are designated as “No Parking on Red Flag Days,” as do some municipalities. Consequently, there is no signage to limit parking and create additional access on those days. OakDOT’s parking control technicians (who are responsible for issuing tickets to illegally parked cars), conduct limited patrols in the Oakland Hills, although not with the same regularity as they patrol commercial zones (including areas with parking meters) or areas with street sweeping restrictions. The Grand Jury heard conflicting information about the level of parking enforcement in the Oakland Hills. While OakDOT may conduct enforcement and dispatches additional parking control technicians on days designated as Red Flag Days, it is evident that the current level of enforcement overall is insufficient. 70 2024-2025 Alameda County Grand Jury Final Report ______________________________________________________________________________________________________________ Oakland should increase the “no parking” zones in the hills, particularly on narrow streets or streets with curves that may be more difficult to navigate for large emergency vehicles. Indeed, the National Fire Safety Association states that road access for fire equipment should have a minimum unobstructed width of not less than 20 feet. To follow that guidance, parking in the Oakland Hills likely would have to be limited to one side on many narrow streets. Oakland also should add “no parking” zone in certain areas, so that those restrictions apply on Red Flag days – a solution used in other high fire risk areas in California. The Grand Jury recognizes that there likely would be costs involved in purchasing and placing new signage, as well as implementing increased enforcement to ensure evacuation routes are available and safe. We note these parking management solutions for consideration by the city. The Grand Jury did not investigate the amount of possible increased costs. To the extent that citations for parking violations bring in revenue, the cost of enforcement may be covered in part by collection of parking fines. Measure MM requires actions to provide “well-maintained, accessible” evacuation routes and to provide education. Although Measure MM implementation plans remain pending, the Grand Jury encourages the city to focus on safe evacuation planning with some urgency. This planning should include increased parking enforcement; public outreach and education so that residents will be aware of their evacuation zones and evacuation routes; and regular updates on coordination among Oakland departments and between Oakland and neighboring fire prevention agencies (including funds necessary for interagency training). Coordination With Other Agencies Because fires do not respect city boundaries, and problems with coordination were identified as an issue in the Tunnel Fire, the Grand Jury reviewed the current state of interdepartmental and interagency coordination. Since the Tunnel Fire, coordination has improved, including increased use of the same types of communication systems and equipment, as well as joint training on procedures to allow fire departments to work together when necessary. Oakland and nearby agencies also improved coordination through several multi-jurisdictional organizations. The Hills Emergency Forum was created after the Tunnel Fire and now includes the following partners: Oakland, Berkeley, El Cerrito, CAL FIRE, East Bay Regional Parks District, East Bay Municipal Utility District, Lawrence Berkeley National Laboratory, the Moraga-Orinda Fire District, and the University of California, Berkeley. It meets regularly to discuss coordination of evacuation routes, clearing trails, training, and equipment. The forum’s coordination plans include mutual aid arrangements, as necessary to address wildfires (locally and outside the region). It also coordinates work with Civic Corps and community groups that assist local fire departments in clearing fire hazards. Finally, it provides information to members about securing grant funding. 71 2024-2025 Alameda County Grand Jury Final Report ______________________________________________________________________________________________________________ More recently, Oakland has participated in the new East Bay Wildfire Coalition of Governments. In 2021, the Oakland City Council, recognizing the need for coordination among public entities in the area, adopted a resolution directing the city administrator to participate in discussions about the possible formation of a joint powers authority for fire prevention and management among Easy Bay hills jurisdictions. Ultimately, the participants chose not to pursue a joint powers authority, at least for the present time. Instead, in 2023, they entered into a Memorandum of Understanding to form the East Bay Wildfire Coalition of Governments. The East Bay Wildfire Coalition of Governments, which now meets periodically to receive reports and discuss efforts to mitigate the risk of wildfire in the East Bay hills is comprised of the following members: Alameda and Contra Costa counties, Alameda County Fire Department, Contra Costa Fire Protection District, the Rodeo-Hercules Fire Prevention District, and the cities of Berkeley, Oakland, El Cerrito, and Richmond. In addition, the University of California, Lawrence Berkeley National Laboratory, East Bay Regional Parks District, East Bay Municipal Utility District, and the East Bay Firesafe Councils (representing community members) participate as regional advisors. Separately, one recent example of successful coordination was the response to the Keller Fire in Oakland in October 2024. Before that fire started, the National Weather Service issued Red Flag warnings, including warnings of possible 40-mph winds. Because of the warnings, OFD pre-positioned fire engines and other firefighting apparatus in the hills. The planning included coordination with emergency services across the county. All cities with emergency service engines were “upstaffed,” making extra staff available to respond. As a result, OFD was able to move necessary equipment to the Keller scene immediately. In addition, CAL FIRE sent air resources almost immediately. Over 200 personnel coordinated to evacuate 254 structures. In all, 27 different jurisdictions were on the scene. Because of prior communications and coordinated training, responders were able to work together and prevent the fire from reaching more populous areas, which could have been catastrophic. Their combined efforts limited the Keller Fire to 15 acres, with damage to only two structures and no injuries.