The FCC are the ones who put the words "...communications directly related to the immediate safety of human life or the protection of property..." into the rules. If you know of a better definition of "emergency communications" in 47 CFR, please feel free to share the citation with the group. Emergency communications are the radio equivalent of a 911 call. Everything else falls under "disaster communications" or something similar, where immediate communications are not needed to protect human life or property. All of those uses have other existing radio services better tooled and developed for such communications.