Not a neat and tidy one, no. But so-called FEMA activity is driven by local "FEMA deputies" for want of a better word. The state has control, FEMA is there to help, not to override, and in most cases, the FEMA person is in fact a state or local employee.
When the Red Cross was told not to enter NOLA to provide relifef, becuase of a lack of civil order, the direction came from LA state people, not federal people.
Thanks for the explanation.