CHASI is proud to maintain a longstanding partnership with the National Indigenous Fire Safety Council (NIFSC). The NIFSC supports Indigenous communities in the development of their internal capacity to enhance community safety and resiliency. As part of this partnership, CHASI is pleased to amplify their articles on our blog.
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Closing the Knowing-Doing Gap: A Sustainable Framework for Fire Prevention Education and Monitoring in Indigenous Communities
By Len Garis and Mandy Desautels
Fire safety in Indigenous communities across Canada is a pressing concern, shaped by unique social, geographic, and infrastructural challenges. The report Implementing the Training Logistics Tool, authored by Dr. Joseph Clare and Mr. Pierre Robinson, presents a transformative framework designed to address these challenges through education, behavioral reinforcement, and strategic logistics. At its heart lies a mission to close the “knowing-doing gap” and counter the “wear-off effect”—two cognitive hurdles that often undermine the long-term success of safety interventions.
This article explores how the proposed approach not only delivers fire prevention education but also sustains its impact through ongoing monitoring and reapplication, filling critical gaps in community resilience.
Why Fire Prevention Needs a Rethink
The report begins by acknowledging the limitations of traditional fire safety programs. While many initiatives succeed in raising awareness, they often fall short in changing behavior over time. This is especially true in communities where resources are stretched, infrastructure is aging, and cultural contexts require tailored engagement.
To address this, the authors propose two core deliverables:
- A framework for fire safety education that promotes lasting behavioral change.
- A logistics tool that supports sustainable scheduling, delivery, and evaluation of fire safety programs and inspections.
Though the initial focus is on First Nations communities living on reserves, the authors advocate for future expansion to include Inuit, Métis, and off-reserve populations.
The Psychology Behind Prevention: Knowing vs. Doing
One of the most compelling contributions of the report is its integration of cognitive psychology to explain why fire safety education often fails to translate into lasting behavioral change. Two key concepts are central to this understanding:
- The Knowing-Doing Gap
This refers to the disconnect between what people know and what they do. In fire safety, individuals may understand the importance of checking smoke alarms, planning escape routes, or avoiding risky heating practices—but fail to act on that knowledge consistently. This gap is not due to ignorance, but rather to the complexity of human behavior, which is influenced by habits, motivation, perceived risk, and competing priorities.
For example, a resident may know that their smoke alarm needs testing but delay the task due to inconvenience or forgetfulness. Over time, this inaction becomes normalized, increasing vulnerability.
- The Wear-Off Effect
Even when education leads to initial behavior change, its impact tends to fade. This phenomenon—known as the wear-off effect—occurs when people revert to old habits or lose vigilance as time passes. Without reinforcement, the lessons learned during training gradually erode, leaving communities exposed once again.
This is particularly problematic in fire safety, where the consequences of a single lapse can be catastrophic. The report emphasizes that education must be cyclical, not episodic. It must be designed to refresh knowledge, re-engage behavior, and rebuild motivation at regular intervals.
Bridging the Gap with Design
The report’s proposed training and inspection methodology directly addresses these cognitive challenges. By scheduling person-focused training every two years and place-focused inspections every four years, the framework ensures that knowledge is not only delivered but reinforced. The logistics tool plays a pivotal role here—tracking when interventions were last applied, flagging when they’re due for renewal, and enabling targeted reapplication where behavioral or environmental risks re-emerge.
This approach transforms fire safety education from a one-time event into a sustained behavioral journey. It respects the realities of human psychology and builds a system that supports people in doing what they already know is right.
Mapping Education to People and Places
The National Indigenous Fire Safety Council (NIFSC) currently offers 77 programs, 20 of which focus on community education. These are categorized into:
People-Focused Programs
These aim to change behavior and increase awareness. Examples include:
- Cooking safety
- Heating and electrical safety
- Home escape planning
- Senior and elder safety
- Multi-generational residence safety
- Wood heat maintenance
- Seasonal safety campaigns
The report recommends consolidating overlapping programs to streamline delivery and improve impact.
Place-Focused Programs
These target environmental risks and include:
- Smoke alarm and carbon monoxide safety
- Home safety assessments
Additional infrastructure support—like fire protection planning and sprinkler system maintenance—could be integrated into a unified place-focused strategy.
A Sustainable Training and Inspection Cycle
To combat the wear-off effect and ensure sustained impact, the report proposes a cyclical approach:
- Person-Focused Training: Delivered every two years to reinforce knowledge and behavior.
- Place-Focused Inspections: Conducted every four years, with interim support for alarm replacements and system checks.
This rhythm ensures that fire safety education is not a one-time event but a continuous process. It also allows for timely reapplication of interventions when knowledge or compliance begins to fade.
Evaluation: Measuring What Matters
The report stresses the importance of rigorous evaluation, both during and after program delivery. Key metrics include:
- Pre- and post-training knowledge and behavior
- Knowledge retention over time
- Behavioral change and relapse rates
- Inspection coverage and alarm functionality
- Fire incident outcomes
By tracking these indicators, the NIFSC can refine its programs, identify gaps, and ensure that interventions remain effective and relevant.
The Training Logistics Tool: A Backbone for Sustainability
To support this cyclical model, the report introduces a powerful logistics tool that helps staff plan, execute, and monitor fire safety programs. Its key components include:
- Data Source and Band Reference
These tabs provide demographic and geographic data, helping tailor program delivery to each community’s needs.
- Program Reference
Outlines delivery modes, treatment frequency, estimated time per unit, and staffing requirements. Users can adjust parameters based on field experience.
- Scheduling Entry Form
A structured interface for inputting program details, scheduling treatments, and tracking delivery status. Mandatory fields ensure consistency, while optional fields allow for contextual notes.
- Database Updates
Captures actual travel times, treatment durations, and completion status. These insights inform future scheduling and help refine assumptions.
- Resource Allocation and Scenario Planning
Allows users to model alternative delivery scenarios, optimizing staff deployment and program reach.
- Reporting Tools
Pivot tables and ad hoc reporting features enable customized data analysis, supporting evidence-based decision-making.
Filling the Sustainability Gap
What sets this framework apart is its emphasis on sustainability. By embedding monitoring and reapplication into the program cycle, the NIFSC ensures that fire safety education doesn’t fade into memory—it becomes part of the community’s rhythm.
The logistics tool acts as a central nervous system, coordinating efforts, tracking outcomes, and enabling timely interventions. It transforms fire safety from a reactive service into a proactive, data-driven strategy.
Looking Ahead
The report concludes with a call to action: expand the reach of these programs, refine their delivery, and continue evaluating their impact. As the NIFSC builds on this foundation, it has the opportunity to create a national model for fire prevention—one that respects Indigenous contexts, leverages cognitive science, and prioritizes long-term resilience.
Authors
Len Garis is director of research for the National Indigenous Fire Safety Council, Ret. Fire Chief for the city of Surrey, B.C., associate scientist emeritus with the B.C. Injury Research and Prevention Unit. Contact him at lwgaris@outlook.com.
Mandy Desautels is Chief Administrative Officer at the National Indigenous Fire Safety Council. Prior to joining NIFSC, she worked for BC Emergency Health Services and prominent NGOs. Contact her at mandy.desautels@indigenousfiresafety.ca.