We investigate the following translational 2D polygon covering problem: for a collection of covering polygons and a target point (or polygon) set, decide if the covering polygons can be translated to cover the target set. If the answer is "yes," produce translations for a cover. We prove this problem is NP-complete and provide an incrementally constrained algorithm whose search space exploration is guided by intersection graphbased heuristics. Our algorithm is approximate for polygonal targets.