FEMA 

FEMA POLICY: Mission Assignments 

FEMA Policy #104-010-2 

BACKGROUND 

This policy applies to all Federal, state, tribal, and territorial governments that request, 

issue, or receive a Mission Assignment (MA) from the Federal Emergency Management 

Agency (FEMA) to support emergency response efforts under the Stafford Act. 1 

This policy is supplemented by the FEMA Mission Assignment Guide, which outlines the 

operational processes for the MA program. This document supersedes FEMA Policy 

104-010-2: Mission Assignment Policy, dated November 6, 2015. 

PURPOSE 

This policy establishes FEMA's approach to implement the MA program as authorized 

by the Stafford Act. The policy establishes the fiscal and administrative requirements 

and business standards associated with the MA program including the development, 

approval , issuance, execution , reimbursement, and closeout of an MA. 

PRINCIPLES 

A. FEMA has been delegated the authority to issue mission assignments to other 

Federal agencies that cite funding , managerial controls , and other guidance directing 

an agency to complete a specific task (44 C.F.R. § 206.2(a)(18)) . 

B. The proper execution and management of MAs is essential to supporting the 

coordination of Federal emergency management. 

C. MAs are distinct in allowing for deployment and assistance from the full range of 

Federal resources to support incident needs . 

D. MAs enable FEMA to meet mission requirements either in anticipation of, or in 

response to a Presidential declaration of an emergency or a major disaster under 

the Stafford Act. 

1 The Robert T. Stafford Disaster Relief and Emergency Assistance Act {Stafford Act) authorizes the President to "direct any 

Federal agency, with or without reimbu rsemen t, to utilize its authoriti es and the resources gran ted to it under Federal law" in 

support of Federal, state, triba l, and territor ial {STT} government response efforts for eme rgencies (42 U.S.C.§ 5192[a}[l}} and 

major disasters (42 U.S.C.§ 5170a{l)). This task ing auth ority, delegated to the FEMA Admini strator through .the Secreta ry of the 

Department of Homeland Secu rity, is carried out thro ugh a Mission Assignm ent {MA}. 

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REQUIREMENTS 

A. SECTION 1: MISSION ASSIGNMENT CATEGORIES 

Outcome: The two categories of MAs are identified as Federal Operations Support 

and Direct Federal Assistance 2, and are described in terms of the types of work 

associated with the MA category and the cost share for state, tribal, and territorial 

(STT) governments. 

1. Federal Operations Support: Federal Operations Support MAs task Federal 

agencies to provide Federal-to-Federal support allowing FEMA to coordinate 

the Federal Government's response and recovery missions (44 C.F.R. §§ 

206.5, 206.7,·206.8) . 

a. Cost Share: Federal Operations Support assistance is internal to the 

Federal Government and related costs are not passed on to STT 

governments . There is no STT cost share, and Federal Operations Support 

is 100 percent federally funded. 

b. Pre-Declaration Federal Operations Support MAs: FEMA may issue 

Federal Operations Support MAs prior to a Stafford Act declaration for predeclaration activities required to prepare for an incident for which a 

"declaration is likely and imminent." (See FEMA Directive 125-2: Disaster 

Relief Fund [ORF] Pre-Disaster Declaration [Surge] Funding.) 

2. Direct Federal Assistance: Direct Federal Assistance MAs allow for the 

support of the Federal Government during incident operations following a 

declaration of an emergency or major disaster. Direct Federal Assistance MAs 

provide goods and services for eligible emergency work when an STT 

government has exhausted its own capabilities to provide those services . 

FEMA may not issue Direct Federal Assistance MAs prior to a Presidential 

declaration of an emergency or major disaster . Direct Federal Assistance MAs 

are issued following a request from an STT government for Federal assistance 

(44 C.F.R. § 206.208(a)). Direct Federal Assistance MAs must be signed by the 

STT Authorizing Representative and are subject to the eligibility criteria of 

Subpart H - Public Assistance Eligibility (44 C.F.R. §§ 206.220-228). 

a. Cost Share: The Stafford Act requires an STT government to share the 

costs associated with requests for Federal assistance pursuant to the terms 

provided in the President's declaration . Pursuant to the Stafford Act, the 

Federal share of Direct Federal Assistance shall not be less than 75 

percent of the cost of eligible work (42 U.S.C. §§ 5170b(b), 5193(a); 44 

C.F.R. § 206.208(a)). 

2 FEMA eliminated the Technical Assistance MA category in 2013. Technical Assistance acti vities provided through a Direct 

Federal Assistan ce MA are now subject to a STT cost-share as identified in the applicab le Stafford Act Declaration. 

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B. SECTION 2: CREATION OF MISSION ASSIGNMENTS 

Outcome: MAs are properly created with a statement of work that includes a defined 

period of performance and cost estimate. 

1. Statement of Work (SOW) and Cost Estimate: The FEMA Project Manager 

and the other Federal agency (OFA) action officer coordinate to develop the 

SOW and cost estimate. 

a. An SOW for an MA must be specific enough to identify the required task, 

but general enough to allow an assigned agency flexibility to accomplish the 

task. An SOW should not include specific dates or quantifiable numbers. 

b. A cost estimate accompanies the SOW based on the scope of the mission 

and the resources needed to complete the tasks under the SOW and period 

of performance . Cost estimates may only include reimbursable costs as 

identified in 44 C.F.R. § 206 .S(c). 

2. Period of Performance: The period of performance for an MA varies 

depending on its category , purpose , and incident conditions. 

a. The recommended period of performance for Federal Operations Support 

MAs funded under the surge account is 7-10 days . Under an emergency or 

major disaster , the period of performance for Federa l Operations Support 

MAs may be extended as required and coordinated with the Federal 

Approving Official. MAs in excess of a year must be considered for 

conversion to an interagency agreement (IAA). 

b. The period of performance for Direct Federal Assistance MAs will not 

exceed 60 days from the President's declaration unless approved by the 

Regional Administrator or Disaster Recovery Manager due to extenuating 

circumstances or unusual project requirements as described in 44 C.F .R. § 

206 .208(d) . 

c. The period of performance for an MA tasked to a Recovery Support 

Function (RSF) agency to support disaster recovery activities may not 

extend beyond two years and the MA terminates on or before the second 

anniversary of the declaration . Activities expected to extend beyond two 

years from the declaration date must be compl eted under an IAA. 

3. Pre-Scripted Mission Assignment (PSMA): A PSMA is not an official mission 

assignment but is a preliminary SOW and cost estimate jointly developed by 

FEMA and an OFA prior to an incident in order to expedite the processing of an 

MA once it is required . As general guidance , the development of a PSMA is not 

required prior to the issuance of every MA. PSMAs are created for capabilities 

that involve known or frequently used resources for services such as logistics , 

communications, mass care , health services, and public safety . PSMAs may be 

used as a starting point in the development of an MA SOW , but are not 

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approved MAs and should be adapted to the specific requirements of the 

incident. A final MA developed from a PSMA must be completed in accordance 

with all MA process requirements. An inventory of PSMAs is maintained and 

searchable in the WebEOC PSMA Library. 

C. SECTION 3: ISSUANCE OF MISSION ASSIGNMENTS 

Outcome: MAs are issued, or confirmed , in writing by authorized FEMA officials to 

an OFA, identifying the specific task to be performed and the requirements or criteria 

to be followed . 

1. Written and Verbal MAs: "All directives , known as MAs to OFAs shall be in 

writing, or shall be confirmed in writing if made [verbally]" (44 C.F.R. § 206.7). 

The MA shall identify the specific task to be performed and the requirements or 

criteria to be followed. There are limited urgent circumstances during an 

incident where immediate action is imperative, and verbal requests from an 

STT government are made and/or verbal taskings are given to an OFA. Only 

FEMA personnel with Disaster Recovery Manager authority can issue a verbal 

directive for MAs. 

2. Disaster Recovery Manager: The person appointed to exercise the authority 

of a Regional Administrator for a particular declaration of an emergency or 

major disaster . 

a. Delegation of Disaster Recovery Manager Authority: The FEMA 

Administrator delegates Disaster Recovery Manager authority, which 

includes MA tasking authority, to the Associate Administrator in the Office of 

Response and Recovery and to Regional Administrators . The Associate 

Administrator may further delegate this authority, as necessary in writing, to 

others including the Chief of the National Response Coordination Staff 

(NRCS) and the NRCS Resource Support Section Chief. 

b. In response to a declaration of an emergency or major disaster, Regional 

Administrators may further delegate this authority in writing to others 

including Federal Coordinating Officers (FCOs) and Federal Disaster 

Recovery Coordinators (FDRCs). 

D. SECTION 4: EXECUTION OF MISSION ASSIGNMENTS 

Outcome: As dictated by evolving incident requirements , MAs may be adjusted to 

more clearly define work requirements or to support key modifications such as a 

change in the period of performance , funding needs, or cost share requirements. 

1. Mission Assignment Task Orders (MATOs): Direct specific activities within the 

scope of an approved and obligated MA. A MATO must be within the original SOW; 

however, an additional task assigned to an OFA must be reviewed for potential 

changes in funding or extension of the period of performance in order to ensure 

appropriate amendments are processed in a timely manner. Task Order cost 

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estimates should be calculated for the specific task generated to support the MA. The 

sum of all Task Order cost estimates should never exceed the MA cost estimate . A 

Task Order does not obligate additional funds; it details expenditures against the cost 

estimate listed on the MA. A MATO is issued for the following: 

a. To prevent the issuance of multiple MAs for the same SOW (when the work falls under 

an existing SOW), 

b. To provide more detailed direction for a broad SOW (e.g. delivery sites for water), or 

c. To support an amendment when the additional tasking extends the period of 

performance or increases the funding requirements . 

2. Amendments: 

a. Circumstances that require amending an MA include: 

1. The obligation of additional funds or de-obligation of excess funds, 

ii. A change in the period of performance , 

iii. A modification of the STT cost share (only when the cost share 

change is for the life of the MA), and 

iv. A change in project manager (only if the change is permanent) . 

b. Circumstances that require the issuance of a new MA include: 

i. A change of the SOW , 

ii. A change to the program code funds/Budget Object Class , 

iii. A change to the type of assistance provided between Federal 

Operations Support and Direct Federal Assistance , or 

iv. If the STT cost share change is limited to a specific period , a new MA 

should be written with a performance period to match the dates of the 

authorized cost share change . 

3. Mission Assignment Project Management: The project manager plays a 

critical role in monitoring the progress of an MA and ensuring that the assigned 

work is properly completed . Active project manager administrative engagement 

spans the entire life of the MA , from creation to closeout. The project manager 

is required to coordinate with the OFA action officer throughout the MA process 

to manage and oversee the work being performed by the OFA. 

E. SECTION 5: FINANCIAL ACCOUNTABILITY OF MISSION ASSIGNMENTS 

Outcome : FEMA manages the financial reporting requirements associated with the 

execution of an MA and will direct OFAs on the requirements to provide financial 

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status information. 

1. OFAs must provide cost expenditure rates or other financial status reports at 

the direction of FEMA. 

2. MA staff must coordinate with the OFA to closeout as per FEMA Directive 125-

3, Review and Certification of Open Obligations. 

3. Spend Plans are required on all disaster declarations regardless of the dollar 

value as described in FEMA Directive 125-7 , Financial Management of Disaster 

Relief Fund (ORF) . 

4. The Integrated Financial Management Information System (IFMIS) is FEMA's 

primary general ledger financial management , acquisition, and disbursement 

system. The "IFMIS " initials, located on financially processed MAs, are not 

required to initiate immediate OFA resource and capability deployment 

activities . The "IFMIS " initials are a FEMA only accounting identifier and are not 

required for an agency to act on an MA. 

5. MAs may be subject to incremental funding periods as approved and 

determined by the Disaster Recovery Manager authority in conjunction with the 

Office of the Chief Financial Officer. 

6. All other Federal departments and agencies tasked through an MA shall submit 

financial status reports on a quarterly basis until final closeout. 

7. MAs may be terminated when the specified activity outlined in the SOW is no 

longer required . FEMA has the authority to discontinue an MA at any time by 

notification to the assigned agency. The notification should explain why FEMA is 

discontinuing the MA and include the termination date and a request for final 

billing . 

F. SECTION 6: REIMBURSEMENT TO OTHER FEDERAL AGENCIES 

Outcome: FEMA reimburses an OFA for tasks performed under an MA, as long as those 

tasks do not fall within the statutory authority of that Federal agency. 

1. Discretionary Use of the DRF: 42 U.S.C. § 5147 expressly provides that 

Federal agencies may be reimbursed for expenditures under the Stafford Act. 

42 U.S.C . §§ 5170a and 5192 provide that FEMA may direct any Federal 

agency , with or without reimbursement , to utilize its authorities and resources in 

. support of STT disaster relief efforts . 

2. OFA Eligibility for Reimbursement under an MA: The Stafford Act authorizes 

the President to direct any Federal agency to support State and local response 

and recovery efforts (42 U.S.C. § 5170a) . FEMA may not mission -assign an 

OFA to conduct a task that falls within the statutory authority for that Federal 

agency (44 C.F.R. § 206 .208(c)(2)). Memorandums of Understanding and 

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Memorandums of Agreement with OFAs provide guidance as to when work 

performed by an OFA may be reimbursed. 

3. Expenditures Eligible for Reimbursement: Expenses that are eligible for 

reimbursement under an MA are listed in 44 C.F.R. § 206 .B(c). OFAs who selfdeploy under their own authority or without FEMA approval will not be 

reimbursed for work performed. Costs incurred outside of the period of 

performance or in excess of the MA will not be reimbur sed, unless coordinated 

with the FEMA project manager or the MA Manager/ MA Unit Leader, if the 

project manager has been demobilized or otherwise relieved , and approved by 

the Federal Approving Official. 

4. Reimbursement After Closure 

a. An agency must provide just ificat ion for FEMA 's consideration to reopen a 

closed MA for additional reimbursement. 

b. Criteria used to determine the need to reopen a closed MA may include , but 

are not limited to: 

i. Justification from the OFA on the cause of any delayed billing ; 

ii. Documentation verifying the work was performed during the 

authorized time period ; and 

iii. Certification of the final bill and no additional outstand ing costs . 

c. For Direct Federal Assistc;rnce MAs, the OFA must indicate the date , time , 

and location where the work was actually performed . This is necessary for 

the proper billing of the state cost share associated with Direct Federa l 

Assistance MAs. 

G. SECTION 7: CLOSEOUT OF MISSION ASSIGNMENTS 

Outcome: The closeout of MAs are properly managed after the tasks have been 

completed and all reimbursements have been received by the OFA. 

1. Financial closeout by FEMA (the Federal Approving Official in coordination with 

the MA Manager , MA Unit Leader, and project manager) with OFAs may be 

initiated under the following circ umstances: 

a. With the receipt of a bill marked "FINAL" along with confirmation from the 

OFA that no further reimbursement requests will be made against the MA; 

b. With correspondence from the OFA that billing is comp lete and the MA may 

be closed and all remaining funds de-obligated ; or 

c. Billing inactiv ity for any 180 day period , unless the OFA provid es FEMA with 

a valid justification . The following are considered valid justifications : 

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1. Expenses incurred within the last 180 days but not yet billed; 

11. Pending contractor billing for expenses incurred within the last 180 

days; 

iii. Under litigation. 

2. FEMA Regional Offices and FEMA Headquarters are responsible for ensuring 

that MAs generated at their respective levels are properly closed out. 

3. Un-liquidated obligations shall be actively managed until the MA is fiscally 

closed in accordance with FEMA Directive 125-3, to ensure that funds are 

being expended in a timely manner . FEMA may request documentation of 

charges incurred but not paid from OFAs to support un-liquidated obligations 

over 90 days old without any financial activity. Excess funds will be de-obl igated 

as identified prior to closeout. 

Date 

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ADDITIONAL INFORMATION 

REVIEW CYCLE 

FEMA Policy #104 -010-2 will be reviewed , reissued , revised , or rescinded with in four 

years of the date of issuance . 

AUTHORITIES 

A. Sections 302 , 304, 402, 403 , 407, 408 , and 502 of the Robert T. Stafford Disaster 

Relief and Emergency Assistance Act , 42 U.S.C. §§ 5143 , 5147 , 5170a, 5170b , 

5173 , and 5192 (Stafford Act) . 

B. 44 C.F.R. Part 206 - Federal Disaster Assistance§§ 206.2 , 206 .5, 206 .7, 206 .8, 

206.44, 206.201, 206 .208 and Subpart H - Public Assistance Eligibility. 

C. The Homeland Security Act of 2002 , Pub. L. No. 107-296, 6 U.S.C. §§ 101 et seq. 

D. Post-Katrina Emergency Management Reform Act (PKEMRA) of 2006, Pub. L. No. 

109-295 . 

E. Sandy Recovery Improvement Act of 2013 , Pub. L. No. 113-2 . 

REFERENCES 

A. FEMA Directive 125-2, Disaster Relief Fund (ORF) - Pre-Declaration (Surge ) 

Funding (05/06/2015) . 

B. FEMA Directive 125-3, Review and Certification of Open Obligations (06/6/2016). 

C. FEMA Directive 125-7, Financial Management of the Disaster Relief Fund 

(10/1/2016) . 

D. FEMA Mission Assignment Guide (09/23/17) . 

E. FEMA Response Directorate Directive RSD-2015-001, Interim Guidance on 

Transition of Level 1 Incident Support Responsibilities (09/09/2015) . 

F. National Disaster Recovery Framework, Second Edition , June 2016. 

G. National Response Framework , Third Edition , June 2016 . 

DEFINITIONS 

A. Appropriation: An appropriation is funding established by an Act of Congress that 

authorizes a Federal agency to incur obligations and to make payment for the 

purpose designated by the appropriation. 

B. Budget Object Class: Provides a method for recording the financial transactions of 

the Agency in terms of the nature of the services or purchases for which obligations 

are incurred , rather than in terms of the program served . Mission Assignment (MA) 

budget object class codes include 2501 and 2508. 

C. Declaration: A Presidential declaration of an emerge ncy or major disaster under the 

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Stafford Act. 

0 . Direct Federal Assistance (DFA): OFA is a type of MA, which consists of goods and 

services provided to the affected state and local jurisdictions when they lack the 

capability to perform or contract for eligible emergency work. Eligibility criteria for 

OFA are set forth in the CFR, Title 44, Subpart H, Public Assistance Eligibility . The 

Presidential declaration of a major disaster or emergency must take place prior to the 

provision of OFA. OFA is subject to the applicable state cost share, usually 25 

percent , but the President may waive this for a specific period. 

E. Disaster Relief Fund (DRF): ORF is the congressional appropriation and source of 

funding for the Robert T. Stafford Emergency Relief and Disaster Assistance Act 

response and recovery programs . Congress appropriates money to the ORF to 

ensure that funding for disaster relief is available to help individuals and communities 

stricken by emergencies and major disasters . Congress appropriates funds to pay for 

FEMA 's disaster operations. The ORF funds the following Stafford Act declarations 

and activities: pre-disaster declaration (surge), emergency , major disaster , fire 

management, and disaster readiness and support activities. 

F. Emergency: Any occasion or instance for which, in the determination of the 

President, Federal assistance is needed to supplement state , tribal , and territorial 

(STT) efforts and capabilities to save lives and to protect property and publ ic health 

and safety, or to lessen or avert the threat of a catastrophe in any part of the United 

States (42 U.S.C. § 5122 (1)). 

G. Emergency Support Function (ESF): ESFs are groupings of governmental and 

certain private sector capabilities and functions into an organizational structure to 

provide support, resources , program implementation , and services that are most 

likely needed to support disaster response operations. 

H. Emergency Work: Emergency work is work which must be performed immediately 

to save lives, to protect improved property , to protect public health and safety , or to 

avert or lessen the threat of a major disaster. 

I. Federal Operations Support (FOS): FOS is a type of MA that allows for the support 

of another Federal agency to support Federal operations. 

J. lnteragency Agreement (IAA): An agreement between Federal agencies whereby 

one agency needing supplies or services (the "Requesting Agency ") obtains them 

from another agency (the "Servicing Agency"). 

K. Major Disaster: Any natural catastrophe (including any hurricane , tornado , storm, 

high water, wind driven water , tidal wave , tsunami, earthquake, volcanic eruption, 

landslide, mudslide , snowstorm, or drought), or, regardless of cause, any fire, flood , 

or explosion, in any part of the United States, which in the determination of the 

President causes damage of sufficient severity and magnitude to warrant major 

disaster assistance under the Stafford Act to supplement the efforts and available 

resources of STT governments , and disaster relief organizations in alleviating the 

damag e, loss , hardship , or suffering caused thereby (42 U.S.C. § 5122 (2)). 

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L. Mission Assignment (MA): An MA is a work order issued by FEMA , with or without 

reimbursement , which directs another Federal agency to utilize its authorities and the 

resources granted to it under Federal law in support of STT government assistance . 

M. Mission Assignment Task Order (MATO): A MATO defines specific tasks based on 

the original statement of work (SOW). 

N. National Response Coordination Center (NRCC): The NRCC is FEMA 's primary 

operations management center and focal point for national resource coordination. 

The NRCC monitors potential or developing incidents and supports the efforts of 

regional and field components. 

0. Other Federal Agency (OFA): Another Federal agency or department that FEMA 

may mission assign to provide emergency and recovery assistance authorized in the 

Stafford Act. 

P. Period of performance: The period of performance is the time during which a 

mission-assigned agency is to complete specified activities and incur and expend 

approved funds . 

Q . Pre-Declaration Activity: Actions taken to prepare and pre-position Federal 

resources necessary for an effective response to an incident where a declaration is 

reasonably likely and imminent (FEMA Directive 125-2 - Disaster Relief Fund [ORF] 

- Pre-Declaration [Surge] Funding). 

R. Pre-scripted Mission Assignment (PSMA): A preliminary SOW and cost estimate 

developed prior to an incident by FEMA and an OFA. 

S. Recovery: The capabilities necessary to assist communities affected by an incident 

to recover effectively . Recovery includes the restoration and strengthening of key 

systems and resource assets that are critical to the economic stability, vitality , and 

long-term sustainability of the communities themselves . 

T. Recovery Support Function (RSF): The RSFs compr ise the National Disaste r 

Recovery Framework (NDRF) coordinating structure for key functional areas of 

assistance to local , state , tribal, territorial , and insular area jurisdictions , the private 

sector , nonprofit agencies , voluntary agencies , and individuals in addressing recovery 

issues . The six RSFs provide structure to facilitate issues and promote coordination 

among state and Federal agencies, nongovernmental partners , and stakeholders . 

U. Regional Response Coordination Center (RRCC): The RRCC is a standing 

multiagency center that FEMA operates in each of the 10 regional offices. The RRCC 

is the primary situational awareness and coordination center for support to FEMA's 

incident management at the Unified Coordination Group (UCG) level. The RRCCs 

are the focal points for regional resource coordination. 

V. Response: A response is an activity that addresses the short-term , direct effects of 

an incident. Responses include immediate actions to save lives , protect property , and 

meet basic human needs and the execution of emergency operations plans and 

incident mitigation activities designed to limit the loss of life, personal injury , property 

damage , and other unfavorable outcomes . 

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W. Stafford Act: The Stafford Act is the Robert T. Stafford Disaster Relief and 

Emergency Assistance Act, Public Law 93-288 , as amended. 

X. Surge Funding: Funds from the ORF used for pre-declaration mobilization and 

readiness activities including National Response Coordination Center (NRCC) and 

Regional Response Coordination Center (RRCC) activations , ESF activations , 

deployments , preliminary damage assessment activities , and certain pre-declaration 

staging activities. 

Y. Web-based Emergency Operations Center (WebEOC): FEMA's official Crisis 

Management System (CMS) which supports emergency management processes 

such as mission-tasking , event reporting , and resource tracking. WebEOC provides a 

common operating picture with comprehensive situational awareness for FEMA and 

its Federal , state, local, and tribal partners . Incident Support (IS) and Incident 

Management (IM) positions are required to use WebEOC and the status boards 

within the system that support their duties. 

MONITORING AND EVALUATION 

Lessons learned, questions , and concerns raised by all stakeholders related to the 

implementation of this policy will be used to inform future revisions . 

QUESTIONS 

Direct questions to FEMA Response Directorate , Office of Policy and Performance , at 

FEMA-ActionOff ice-ORR-Response@fema.dhs.gov . 

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