Understood ... I was only indicating the breadth of existing off-the-shelf technology that is available for full-spectrum (meaning types, not frequencies) communication. Consider that just about everybody and his brother has a cellphone and you don't need to outfit everyone with military radios. All you need to do is have a priority code scheme that gives LEO and FEMA priority access. That portable cell-tower unit looks to be rooftop deployable. The point isn't as much which mode to use but rather that there are lots of modes available. All it would take is the brains to realize at least one mode was necessary.
The problem is that you *require* those portatowers to be there for the handsets to work. They have *no* peer to peer capability without the tower.
FRS/GMRS units are NOT military and they do NOT require a license (for most freqs). And they're cheap.