Pastor Gary is right: "...City Government already has an FRN for licensing other agencies, so a Part 90 license for a few 5 watt handi-talkies might be best" The shelter group does not need to use the counties radios, or share the public safety channel. The group, as a division of the local government, needs to apply for their own VHF frequency, and get some 5 Watt HTs, or perhaps even 5 Watt base VHF stations with outside antennas. Even UHF at 5 Watts would be fine with outside antennas. Part 95 is NOT designed for this purpose, and is not to be used by government agencies other than in a true emergency, which warming shelter coordination is on the very thin edge of that. If I were the FCC, I would kick that out, and make you apply for part 90. Yes, the radios will be more expensive than bubble packs, but professional part 90 radios on a coordinated frequency are the right tool for the job in this case.