No, he has vastly more power than that. He's the head of the Executive Branch and ultimately he controls FEMA. He can't change spending levels, but he has wide latitude in how personnel are used. Also, even when it comes to spending levels, he doesn't just have to sit back and passively hope that Congress puts something on his desk. He has a bully pulpit. He can push for legislation. He can charm, threaten, and browbeat members of Congress. And he can exert major influence in getting his followers to do so, as well. When it comes to things Trump cares about, like getting upper-class tax cuts, at a cost of trillions of dollars of debt, he understands that. Puerto Ricans simply are not among the things he cares about.