To have just one person reley messages, all it would take is one person to get a GMRS license, you can put a GMRS antenna 20' higher than the roof of your home and you then get a higher power GMRS radio. You can run up to 50 watts, It will cover far more than a mile. They will also be able to hear many FRS radios due to the height of their antenna.
The people in their home just tune to channel 21 or whatever the agreed channel is and they will easily be able to hear the one licensed persons transmission.
If there is a true emergency, the people can use a GMRS channel, which if used outside as high as they can get will reach most people and will reach the licensed person with the antenna.
If not a true emergency, people may have to reley messages using FRS. Each block or street should have 2 people responsable for monitoring. A scanner with a good outside antenna up high will pick up FRS for quite a distance.
As was mentioned, people will need to be educated to use their radios in the highest clear spot that they can and keep the antenna perfectly vertical.
It will take some testing to find out what works and what does not. The scanner, set on just the agreed upon FRS channel and GMRS channel will be a huge help in picking up signals so people can reley.
Old style scanners are available for very low prices used and someone with some experience can make ladder line antennas for just a few dollars, put them on a pole, get some 75 OHM coax, which is usually cheap and run it to the scanner.
It will take work to test it all out, but will work very well if people get and stay involved.
All should have a net once a week to make sure their equipment is working and just to get into the habit of using it.
It can be done if a few will take the time to orginize and train those with no knowledge.
Where I live, it's a large rural valley. Many have got their licenses, put up antennas and have legal GMRS radios with a 100 PL tone. They communicate, have a net and also all have FRS radios they monitor using scanners to help those who are not licensed and communicate with those people using FRS radios. It's not perfect, but it covers an area of quite a few square miles. There are more than a few who have got their licenses, this would be mandatory for it all to work.
In a true emergency, they can use their high power radios on FRS channels, any means of communication is legal in a true emergency, just make sure it is a true emergency and that the FCC see's it that way if questioned.
This would all be legal. If people are serious, it will work, especially if your looking at an area of only one mile. Make use of a scanner to hear far greater distances and get at least a few people licensed who will put up a good GMRS system and it will all work out. At the least, FRS stations can reley.
You are going to have to all have a time when you can see what can be done using the FRS and the one to four people who would be willing to get licensed.
Make use of cell phones if working, some could also use Echolink if the Net is still up, there is far more than one way to skin a cat if people are willing to try. Use all available ways you can think of. Having a cheap CB radio as a back up also, having a CB in their vehicle will allow communication using the 12 volt battery in the vehicle if the power is down. Redundency, have more than one way to communicate.
Have a couple people drive around in their vehicles who can monitor if driving is possible. It all depends on how much you really want this all to work. Find someone who is a ham radio operator to help set this all up. Most hams are very good at figuring ways to legally do things.
Do have a net every week, this is one of the most important things you can do. It is a way to find out areas that need work and find a way to get communication to a person who is having trouble.
John