I would suggest starting with the domain and hosting. Figure a fair price, and possibly include some options for them to choose from with different features. Once that is established you can move forward with design, layout, etc. I find it is near impossible to create a site from scratch for an organization that doesn't contribute ANYTHING. You may want to work on getting them to help with something simple such as colors, and providing pictures. You could ask them to seek out a few sites that they like, so you have some idea of what style or layout is catchy to their eye... Good luck!