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No. 08-1224
================================================================
 In The
Supreme Court of the United States
---------------------------------
♦
---------------------------------UNITED STATES OF AMERICA,
 Petitioner,
v.GRAYDON EARL COMSTOCK, JR.,
 et al.
,
 Respondents.
---------------------------------
♦
---------------------------------
On Writ Of Certiorari To TheUnited States Court Of AppealsFor The Fourth Circuit
---------------------------------
♦
---------------------------------
CONSOLIDATED BRIEF OF THE CATO INSTITUTE AND PROF. RANDY E. BARNETT AS
 AMICI CURIAE
IN SUPPORT OF RESPONDENTS
---------------------------------
♦
---------------------------------I
LYA
S
HAPIRO
 D
 AVID
H. R
ITTGERS
  A
NDREW
D. K 
 ASNEVICH
 C
 ATO
I
NSTITUTE
 1000 Massachusetts Ave., N.W.Washington, D.C. 20001(202) 842-0200C. A
LLEN
F
OSTER
*R
OBERT
P. C
HARROW
 E
RIC
C. R
OWE
 D
 AVID
S. P
 ANZER
 G
REENBERG
T
RAURIG
LLP2101 L Street, N.W.Suite 1000Washington, D.C. 20037(202) 331-3100*
Counsel of Record
 November 4, 2009================================================================
COCKLE LAW BRIEF PRINTING CO. (800) 225-6964OR CALL COLLECT (402) 342-2831
 
iTABLE OF CONTENTSPageTABLE OF AUTHORITIES ................................... iiiINTEREST OF
 AMICI 
........................................... 1SUMMARY OF ARGUMENT ................................ 2 ARGUMENT ........................................................... 6I. The Constitution Creates a Federal Gov-ernment of Limited Enumerated Powersand Every Act of Congress Must Have aConstitutional Source .................................. 6II. The Act Is Not a Legitimate Exercise of The Necessary and Proper Clause .............. 9 A. The Necessary and Proper Clause Lim-its Congressional Power ........................ 9B. The Necessary and Proper Clause, ByItself, Creates No Constitutional Pow-er and, Therefore, the Act Cannot BeBased Solely on the Necessary andProper Clause ...................................... 19C. The Necessary and Proper Clause MustCarry into Execution an EnumeratedPower and, Therefore, the Act CannotBe Predicated on Congress’ ImpliedPower to Establish a Federal PenalSystem ................................................... 201. This Court has never upheld legis-lation under the Necessary and Prop-er Clause that did not carry intoexecution an enumerated power ...... 21
 
iiTABLE OF CONTENTS – ContinuedPage2. The Act does not carry into execu-tion any Congressional power, letalone an enumerated power ............. 25III. The Act Does Not Fall Within Congress’ Authority Under the Commerce Clause ..... 28CONCLUSION ....................................................... 35
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