East Bay Hills Fire (Oakland-Berkely, CA - October 1991) » Analysis - Volunteer Response

While the large scale mobilization of fire department resources was taking place, off-duty firefighters from Oakland and surrounding communities were converging on the scene to offer their assistance. Appeals were broadcast for all available experienced firefighters to respond to Oakland to assist in stopping the conflagration, and scores responded.

Many individual firefighters, both career and volunteer, simply showed up, attached themselves to operating units, and went to work. They were joined by dozens of citizens who pitched in to help the firefighters in any way they could. The untrained citizens carried equipment, dragged hoselines, helped to direct nozzles, and performed anything that was asked of them. There were also groups of military personnel, particularly from the Alameda Naval Air Station, who showed up and volunteered their services. While trained firefighters wearing protective clothing worked in the most hazardous locations, they were often supported by citizens in shorts and tee shirts who were anxious to help and enthusiastically followed directions.

While untrained citizens were being enlisted at the fire scene, trained firefighters from other jurisdictions who called to offer their services were directed first to Oakland Fire Headquarters and later to the staging area at Raimondi Park. Dozens responded and signed in to offer their services, but there was no mechanism to organize them and utilize their capabilities. Some complained about being kept waiting around the staging areas for hours, watching reports on television and looking at the fire in the distance. Some became frustrated and drove to the fire scene on their own, joining in the action wherever they saw the need.

There is a dilemma in the concern for accountability and safety of “spontaneous volunteers,” versus the desirability of using them to assist in situations that are beyond the control of the regular force. Clearly, untrained citizens provided valuable assistance in several areas. Oakland had a very similar experience with citizens assisting in the initial rescue efforts at the Cypress Freeway collapse in the Loma Prieta earthquake. In disaster planning, there is a need to develop mechanisms to effectively utilize this “spontaneous volunteer” assistance.

There must also be concern for the safety of such participants. Prevailing standards hold the Incident Commander and supervisory officers responsible for the safety of all personnel under their direction. This should be a consideration when the use of untrained personnel is contemplated, but in a true disaster the decisions are usually made at the point where the need exists, not at a central command post.

Prevailing standards and procedures severely limit the ability of trained firefighters to “freelance” at incidents, by requiring them to be part of a recognized organization structure. It is ironic when untrained citizens can be used, but trained and capable firefighters cannot, because there is no structure to bring them into the system. While the need for such mechanisms may be infrequent, there should be a system to effectively organize both trained and untrained individuals when the need arises. This should be addressed in planning for future disasters.

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