One user can call or text another user if contact information is visible. A user who is not part of a team or organization cannot communicate with multiple people using the PubSafe messaging functionality. The portal is reserved for organizations. 

A team member can communicate with other members of the team using the app messaging functionality but not with users not part of the team. A team can be independent or inclusive of an organization. 

An organization with Pro or Enterprise users can communicate with org members but not with users not part of the organization.

A government organization may communicate with org members and individual users not part of the organization (general users). Limits apply.