Tom, you missed FEMA interaction at the state and county levels because there is none. And it is not for nothing that Witt is now with International Codee Counsel: it is they that promulagates the uniform flood plain development ordiance that every municipality has to adopt in order to qualify its residents for flood insurance.

FEMA is, of course, a creature of federal statute, and its internal operation are supposed to be regulated by Rules promulgated in the Code of Federal Regulations, which are in turn puplished through the Federal Register. However, if you look at the CFR, you will find virtually nothing. Therefor, FEMA operates in a virtually ad hoc manner, as I am sure you have seen. The reasons for that is that the agency has never adequately codified its own internal operating procedures. It is really the ultimate bureaucracy.

This is the role of FEMA as set forth at 6 USC 317:

§ 317. Role of Federal Emergency Management Agency
Release date: 2005-05-18

(a) In general
The functions of the Federal Emergency Management Agency include the following:
(1) All functions and authorities prescribed by the Robert T. Stafford Disaster Relief and Emergency Assistance Act (42 U.S.C. 5121 et seq.).
(2) Carrying out its mission to reduce the loss of life and property and protect the Nation from all hazards by leading and supporting the Nation in a comprehensive, risk-based emergency management program—
(A) of mitigation, by taking sustained actions to reduce or eliminate long-term risk to people and property from hazards and their effects;
(B) of planning for building the emergency management profession to prepare effectively for, mitigate against, respond to, and recover from any hazard;
(C) of response, by conducting emergency operations to save lives and property through positioning emergency equipment and supplies, through evacuating potential victims, through providing food, water, shelter, and medical care to those in need, and through restoring critical public services;
(D) of recovery, by rebuilding communities so individuals, businesses, and governments can function on their own, return to normal life, and protect against future hazards; and
(E) of increased efficiencies, by coordinating efforts relating to mitigation, planning, response, and recovery.
(b) Federal Response Plan
(1) Role of FEMA
Notwithstanding any other provision of this chapter, the Federal Emergency Management Agency shall remain the lead agency for the Federal Response Plan established under Executive Order No. 12148 (44 Fed. Reg. 43239) and Executive Order No. 12656 (53 Fed. Reg. 47491).
(2) Revision of Response Plan
Not later than 60 days after November 25, 2002, the Director of the Federal Emergency Management Agency shall revise the Federal Response Plan to reflect the establishment of and incorporate the Department.


And next, Section 313:

§ 313. Functions transferred
Release date: 2005-05-18

In accordance with subchapter XII of this chapter, there shall be transferred to the Secretary the functions, personnel, assets, and liabilities of the following entities:
(1) The Federal Emergency Management Agency, including the functions of the Director of the Federal Emergency Management Agency relating thereto.
(2) The Integrated Hazard Information System of the National Oceanic and Atmospheric Administration, which shall be renamed “FIRESAT”.
(3) The National Domestic Preparedness Office of the Federal Bureau of Investigation, including the functions of the Attorney General relating thereto.
(4) The Domestic Emergency Support Teams of the Department of Justice, including the functions of the Attorney General relating thereto.
(5) The Office of Emergency Preparedness, the National Disaster Medical System, and the Metropolitan Medical Response System of the Department of Health and Human Services, including the functions of the Secretary of Health and Human Services and the Assistant Secretary for Public Health Emergency Preparedness relating thereto.
(6) The Strategic National Stockpile of the Department of Health and Human Services, including the functions of the Secretary of Health and Human Services relating thereto.

The "Secretary" which this section speaks is the Secretary of the Department of Homeland Security. Clear as mud yet?