What is the Federal Emergency Management Agency? Simply put, it is the "secret government". This agency has powers and authority that go well beyond any other agency in the nation. What can FEMA do? It can suspend laws. It can move entire populations. It can arrest and detain citizens without a warrant and can hold them without a trial. It can seize property, food supplies, and transportation systems. And it can even suspend the Constitution of the United States.
When the first concept had been presented, its original mission was to assure the survivability of the United States Government in the event of a nuclear attack. It's secondary function was to be a Federal coordinating body during times of domestic disasters. These disasters consisted of earthquakes, floods, and hurricanes.
The "secret" black helicopters that are reported throughout the US, mainly in the West California, Washington, Arizona, New Mexico, Texas, and Colorado areas are flown by FEMA personnel. It has been given the responsibility for many new national disasters such as forest fires, home heating emergencies, refugee situations, riots, and emergency planning for nuclear and toxic incidents. It works together with the Sixth Army in the West.
A series of Executive Orders (EO) was used to create FEMA. It does not matter whether an EO is Constitutional or not, it becomes a law simply by being published in the Federal Registry. These orders go around Congress.