If sets can only contain things and are not allowed to contain sets, then your reasoning is ok and you escape the paradox. But then you have the trouble of defining what things are, and what happens when you want to talk about multiple sets of things at the same time? Given these hardships, it makes sense to concede that sets may contain sets. What then?
Considering your set $A$, is $\{\{a,b\},\{c\}\}$ in the powerset of $A$? It isn't, and yet it is a set. (Try proving this with the axioms!) Notice that it is in the powerset of the powerset of $A$, however. Perhaps then we could describe sets as objects that are inside some amount of repetitions of the powerset operation!
Unfortunately, $\{\{a,b\}, c \}$ is not in the powerset of $A$, nor the powerset of the powerset of $A$, or any repetition of this concept. This is an unfortunate consequence of allowing things to be in sets. In order to construct $\{\{a,b\},c\}$, we need to apply other constructions like pairing and comprehension. This adds a lot of extra complication to the task of describing every set, and is completely unnecessary.
Finally, if we only allow sets to be in sets, then we can describe the collection of all sets with only the powerset and union operations. This is because (unlike things) the empty set has the nice property of being a subset of every set. From here we can see the motivation behind the construction of the Von Neumann universe which does in fact generate every possible set (while not being a set itself).