“This article is devoted to the legislative department of the United States, and has not the slightest reference to the executive department. It begins by providing ‘that all legislative powers therein granted, shall be vested in a congress of the United States, which shall consist of a senate and House of Representatives.’ And after prescribing the manner in which these two branches of the legislative department shall be chosen, it proceeds to enumerate specifically the legislative powers which it thereby grants [and legislative powers which it expressly prohibits];2 and at the conclusion of this specification, a clause is inserted giving congress ‘the power to make all laws which shall be necessary and proper for carrying into execution the foregoing powers, and all other powers vested by this constitution in the government of the United States, or in any department or officer thereof.” Ex parte Merryman, 17 F. Cas. 144, 148 (C.C.D.