This is in the context of coordinating a disaster response. Just because most people couldn't make a call doesn't mean rescue workers didn't have a signal from a mobile cell tower with a satellite link.
Sure, rescue workers had some connectivity. But typically in a disaster the rescue workers are overwhelmed and a large part of the community is out of communications. A ham per neighborhood can really help get the word out, even for simple stuff like there will be a water truck at the local highschool tomorrow at 2-4pm.
