The Tunnel Fire (Oakland Hills) (1991) was a California wildfire in Alameda County, with 1,600 acres, 2,900 structures destroyed, 25 deaths on the public record. Its cause is recorded as confirmed. Litigation reported. Status as of October 2, 2026, per Los Angeles Times.
The Tunnel Fire, known as the Oakland Hills firestorm, burned through the hills above Oakland and Berkeley on October 20, 1991. It killed 25 people and did about $1.5 billion in damage. It is still fifth on CAL FIRE's list of the most destructive California wildfires and third on its list of the deadliest.
It began as a small grass fire the day before. Firefighters controlled it at two acres and were still working the scene the next morning when wind brought it back to life. What started the first fire was never determined.
Lawsuits followed. The U.S. Fire Administration's report describes a deluge of litigation over lost lives and property, claiming that public and private entities had been negligent. In November 1991 the Los Angeles Times reported claims seeking $2 billion against the City of Oakland, over the failure to make sure the first fire was out, and against the East Bay Municipal Utility District, over water supply. We have not been able to confirm how those cases ended, and we do not state an outcome here.
The record that can be confirmed is about insurance. Many owners found their coverage would not pay to rebuild. The state Insurance Commissioner accused Allstate and eight agents of 153 violations in handling Oakland fire claims, and in December 1992 Allstate agreed to pay $1 million. California courts have since traced two changes in insurance law to this fire: rules about underinsurance, and the 2001 amendments to the appraisal process in fire policies.
The fire also reshaped emergency management in California. The Standardized Emergency Management System, required by a law effective January 1, 1993, was adopted as a result of it, according to the state's emergency management agency.
Counts vary by source. CAL FIRE lists 1,600 acres and 2,900 structures. The U.S. Fire Administration gives 1,500 acres and 3,354 single family dwellings plus 456 apartment units.
Fire facts
From public records; unknown values are shown, never guessed.
| Year | 1991 |
|---|---|
| Start date | 1991-10-20 |
| Containment date | 1991-10-22 |
| Region / counties | Alameda |
| Acreage | 1,600 |
| Structures destroyed | 2,900 |
| Structures damaged | Unknown |
| Fatalities | 25 |
| Cause status | confirmed |
| Officially determined arson | No / not determined |
| Public settlement information | No settlement or judgment in the negligence cases against the City of Oakland or the East Bay Municipal Utility District has been confirmed from a court record or government document. In a regulatory matter, Allstate agreed in December 1992 to pay $1 million to settle the Insurance Commissioner's accusations over its handling of Oakland fire claims, according to the Los Angeles Times. |
| Last verified | 2026-10-02 |
Cause
A rekindle. The U.S. Fire Administration's report states that strong winds caused a rekindle of a grass fire from the previous day, that crews were on the scene overhauling it when the fire erupted, and that the cause of the original fire was undetermined. That first fire was reported at 12:12 PM on October 19, 1991 on a hillside in Temescal Canyon in Oakland and declared under control at 1:39 PM at two acres. It flared up again on the morning of October 20. CAL FIRE lists the cause as a rekindle. The report says leads on accidental or negligent causes of the first fire were pursued without a definitive determination. No one was charged.
What happened
The first fire burned two acres on October 19, 1991 and was declared under control that afternoon. The next morning, in strong dry winds, it flared up; crews called a full alarm at 10:58 AM, and the fire spread through the Oakland and Berkeley hills within hours. Twenty-five people died, including a fire battalion chief and a police officer, and about 150 were injured. More than 5,000 people were evacuated from parts of Oakland, Berkeley and Piedmont, and close to 10,000 were left homeless, according to the U.S. Fire Administration. Federal major disaster DR-919-CA was declared on October 22, 1991.
Tunnel Fire (Oakland Hills) timeline
Each entry is dated and links to the public source it comes from.
A brush fire is reported at 12:12 PM in Temescal Canyon, Oakland, and declared under control at 1:39 PM at two acres.
The fire rekindles in strong winds; a full alarm is called at 10:58 AM and the fire sweeps through the Oakland and Berkeley hills.
Federal major disaster DR-919-CA is declared.
Source: FEMA
Claims seeking $2 billion against the City of Oakland and the East Bay Municipal Utility District are reported.
Source: Los Angeles Times
Allstate agrees to pay $1 million to settle the Insurance Commissioner's accusations over Oakland fire claims, as reported that day.
Source: Los Angeles Times
The law requiring the Standardized Emergency Management System, passed as a result of the fire, takes effect.
The Court of Appeal decides a homeowner's underinsurance case arising from the fire.
Source: California Court of Appeal
Litigation status
Litigation reported. Status as of October 2, 2026, per Los Angeles Times.
The U.S. Fire Administration's report on the fire states that there was a deluge of litigation relating to lost lives and property, claiming that various public and private entities were negligent in their responsibility to prevent or control the destruction. The Los Angeles Times reported on November 18, 1991 that class action claims seeking $2 billion had been filed against the City of Oakland, alleging that firefighters failed to make sure the earlier grass fire was extinguished, and against the East Bay Municipal Utility District, over the water system. Those were government claims, the step that precedes a lawsuit against a public entity. We found no published California appellate decision on liability or immunity in those cases, and no court record or government document stating how they ended; superior court records from the period are not available online. Published decisions that do arise from the fire concern insurance. In a 1997 decision, 52 Cal.App.4th 722, the Court of Appeal affirmed an order for a new trial on damages in a homeowner's suit against an insurer over inadequate coverage, after a jury had awarded $180,575.38. In Association of California Insurance Companies v. Jones (2017) 2 Cal.5th 376, the California Supreme Court noted that legislators learned of the underinsurance problem after this fire and the 2003 Southern California fires. In Mahnke v. Superior Court (2009) 180 Cal.App.4th 565, the Court of Appeal noted that the 2001 amendments to Insurance Code section 2071 responded to complaints of insurer abuses after this fire. On the regulatory side, the Insurance Commissioner accused Allstate and eight of its agents in September 1992 of 153 violations in underwriting and claims tied to the fire; in December 1992 Allstate agreed to pay $750,000 for the company and $250,000 on behalf of one agent. Investigators reported no evidence of criminal activity, and no one was charged.
Reported litigation is not a finding against anyone. How the negligence cases over this fire ended is not confirmed, and nothing here describes any individual situation.
Court & regulatory record
- The East Bay Hills Fire, Oakland-Berkeley, California, technical report USFA-TR-060, archived copy , U.S. Fire Administration, FEMA
- Court of Appeal decision in a homeowner's underinsurance case (1997) , California Court of Appeal, First District, Division Two (Case 52 Cal.App.4th 722)
- Association of California Insurance Companies v. Jones (2017) , Supreme Court of California (Case 2 Cal.5th 376)
- Mahnke v. Superior Court (2009) , California Court of Appeal (Case 180 Cal.App.4th 565)
- Unfair Fire Tax Committee v. City of Oakland (2006) , California Court of Appeal, First District, Division One (Case 136 Cal.App.4th 1424)
- SEMS Foundation: Standardized Emergency Management System , California Governor's Office of Emergency Services
This is a reported public-record status, not advice about any individual’s legal situation. Deadlines and eligibility change over time and depend on facts specific to each person. If you have questions about yours, contact us and we will help.
Key figures on the public record
Each figure below was published by the court, agency, or company named beside it, on the date shown. These describe the case and the disaster, not any individual’s situation.
| Figure | Value | Source |
|---|---|---|
| Deaths | 25 | U.S. Fire Administration, October 20, 1991 |
| Injuries | About 150 | U.S. Fire Administration, October 20, 1991 |
| Structures destroyed, CAL FIRE | 2,900 | CAL FIRE, August 4, 2026 |
| Dwellings destroyed, U.S. Fire Administration | 3,354 single family dwellings and 456 apartment units | U.S. Fire Administration, October 20, 1991 |
| Acres burned | 1,600 (CAL FIRE); 1,500 (U.S. Fire Administration) | CAL FIRE, August 4, 2026 |
| Damage | About $1.5 billion | U.S. Fire Administration, October 20, 1991 |
| People left homeless | Close to 10,000 | U.S. Fire Administration, October 20, 1991 |
| Rank among most destructive California wildfires | 5th | CAL FIRE, August 4, 2026 |
| Rank among deadliest California wildfires | 3rd | CAL FIRE, August 4, 2026 |
In the news
Independent news coverage related to the Tunnel Fire (Oakland Hills). Each link opens the original public reporting.
- Oct 21, 202231 years later, Oakland Hills firestorm victims worry lessons learned are now 'forgotten'ABC7 News
- Oct 21, 2021'Tree of Hope' remembers Oakland Hills Firestorm on 30 year anniversaryABC7 News
- Oct 20, 2021Oakland Hills Fire decades years later: Survivors' stories captured in ABC7 documentary 'Firestorm'ABC7 News
- Oct 11, 2017Oakland hills fire survivors' advice for Wine Country: 'You can't rush it'San Francisco Chronicle
- Sep 26, 20171991 Oakland Hills fire: A flatlander remembers, views of the infernoSFGate
- Oct 19, 2011Hills fire fueled changes in insurance practicesSan Francisco Chronicle
- Oct 15, 2011Wind, overgrown trees and brush still a hazard in the hillsThe Mercury News
- Dec 23, 1992Allstate to Pay Record Fine in Handling of Fire ClaimsLos Angeles Times
- Nov 18, 1991$2-Billion Claim Filed in Deadly Oakland FireLos Angeles Times
Common questions about the Tunnel Fire (Oakland Hills)
What caused the Tunnel Fire (Oakland Hills)?
A rekindle. The U.S. Fire Administration's report states that strong winds caused a rekindle of a grass fire from the previous day, that crews were on the scene overhauling it when the fire erupted, and that the cause of the original fire was undetermined. That first fire was reported at 12:12 PM on October 19, 1991 on a hillside in Temescal Canyon in Oakland and declared under control at 1:39 PM at two acres. It flared up again on the morning of October 20. CAL FIRE lists the cause as a rekindle. The report says leads on accidental or negligent causes of the first fire were pursued without a definitive determination. No one was charged.
Is there litigation over the Tunnel Fire (Oakland Hills)?
Litigation reported. Status as of October 2, 2026, per Los Angeles Times.
What areas did the Tunnel Fire (Oakland Hills) affect?
The Tunnel Fire (Oakland Hills) (Alameda County) affected communities including Oakland, Berkeley, Piedmont.
How large was the Tunnel Fire (Oakland Hills)?
1,600 acres, 2,900 structures destroyed, 25 fatalities, per public records as of 2026-10-02.
What caused the 1991 Oakland Hills fire?
The 1991 Oakland Hills fire, officially the Tunnel Fire, was a rekindle. According to the U.S. Fire Administration, strong winds on October 20, 1991 rekindled a grass fire that had burned two acres the day before, while crews were on the scene. The cause of the original fire was never determined.
How many people died in the Oakland Hills fire?
Twenty-five people died in the Oakland Hills fire of October 20, 1991, including an Oakland fire battalion chief and a police officer, and about 150 were injured, according to the U.S. Fire Administration.
How many homes were destroyed in the Oakland Hills fire?
The U.S. Fire Administration reports that the 1991 Oakland Hills fire destroyed 3,354 single family dwellings and 456 apartment units. CAL FIRE lists 2,900 structures destroyed and 1,600 acres burned.
Were there lawsuits over the Oakland Hills fire?
Yes. The U.S. Fire Administration's report describes a deluge of litigation over the 1991 Oakland Hills fire, and claims seeking $2 billion against the City of Oakland and the East Bay Municipal Utility District were reported in November 1991. We have not been able to confirm how those cases ended.
What changed because of the Oakland Hills fire?
California's Standardized Emergency Management System was adopted as a result of the 1991 Oakland Hills fire, under a law effective January 1, 1993, according to the state's emergency management agency. California courts have also linked later insurance law changes on underinsurance and fire policy appraisals to complaints after this fire.
Sources
- The East Bay Hills Fire, Oakland-Berkeley, California (USFA-TR-060), archived copy, U.S. Fire Administration, FEMA
- Top 20 Most Destructive and Deadliest California Wildfires, linked from CAL FIRE Statistics, CAL FIRE
- Disaster declaration DR-919-CA, FEMA
- SEMS Foundation, California Governor's Office of Emergency Services
- Association of California Insurance Companies v. Jones (2017) 2 Cal.5th 376, Supreme Court of California
- Mahnke v. Superior Court (2009) 180 Cal.App.4th 565, California Court of Appeal
- $2-Billion Claim Filed in Deadly Oakland Fire, Los Angeles Times
- Allstate to Pay Record Fine in Handling of Fire Claims, Los Angeles Times
Facts on this page are drawn from the public sources listed above and rewritten in original words. See Sources & Methodology.