Abstract
Law is a tool that can be used by interest groups to advance what they perceive to be their best interests, whether that is advocating for their right to build homes in hazard-prone environments or advocating against such development because of the social and economic costs of disasters. Identifying how interests are to be balanced, and responsibility for disaster risk reduction is to be shared, requires more than knowledge of local law. The allocation of responsibility must be negotiated with stakeholders, negotiation that takes place in the “shadow of the law,” that is, with an expectation of what the law requires and how others may behave to comply with legal obligations.
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