Tactics that FEMA used in other disasters could be difficult to apply in the city. For example, Merritt said, it's impossible to set up trailers in people's driveways if everyone lives in an apartment building, and it's harder to find space to set up mobile homes.
Sandy killed more 100 people in 10 states but vented the worst of its fury on New Jersey and New York. A week after the storm slammed the mid-Atlantic and the Northeast, 1.4 million homes and businesses remained in the dark.
Another storm — a nor'easter packing heavy rain and gusts of 50 to 60 mph — was headed for the metropolitan area Wednesday, threatening more flooding and power outages that could undo some of the repairs made in the past few days.
With the temperatures dropping into the 30s overnight, people in dark, unheated homes were urged to go to overnight shelters or daytime warming centers.
Because so many voters have been displaced by the storm, New York Gov. Andrew Cuomo issued an executive order allowing people to vote in Tuesday's statewide and presidential elections at any polling place in the state. New Jersey had already taken similar measures.
"Just because you are displaced doesn't mean you are disenfranchised," Cuomo said. "Compared to what we have had to deal with in the past week, this will be a walk in the park when it comes to voting."
As for long-term housing for the homeless, Homeland Security Secretary Janet Napolitano said Monday that the government is looking into using everything from hotels and motels to FEMA trailers and prefab homes.
"Given the extent of need, no option is off the table," she said. "All of them will have some place in this puzzle."
Napolitano said the government's first priority is getting people to a warm place where they can eat a hot meal. Beyond that, the government wants to find housing as close to people's homes as possible.
"Whether we'll be able to accomplish that, I couldn't say," she said. "We're just now getting a handle on housing."