In this case, the rules do define what it can do: "Elemental Mastery d10 provides citywide control: extinguishing a burning skyscraper; freezing over a city street; bringing down a city’s power grid" I gather that the first and third examples are first either fire or water, and then electricity, but "freezing over a city street" seems a fairly good way to define the kind of things you see in superhero comics.
(Though it does seem pretty weaksauce for a powerhouse like modern-day Iceman, but I'm not sure if he was quite as powerful in the era where that game was released.)