Bottom Line [carefully not mentioned in report]: When the only viable source of water became seawater [via firetruck or other engine-powered pump], nobody would take responsibility/authority and use the seawater to cool the reactor cores and spent fuel pools.
The chlorides in the seawater would irreparably ruin the stainless steel system. The system was going to be irreparably ruined by a partial meltdown of the fuel elements anyway, without cooling. Then seawater would be required to stop the burning of the Zircalloy fuel rod tubes, that cought fire due to being uncovered.
The Japanese method of making major decisions is to hold meetings, discuss it at bars, and hold more meetings until a consensus is achieved. Time ran out before any consensus could be reached, and Fukushima got the worst of all the possible outcomes -- fire, hydrogen explosions, radiological release into the groundwater and seawater, and chloride contamination of their entire plant.