Not so at all. An unconstitutional enactment is always void on its face. That's not even my opinion...that's a well settled fact not only by the judiciary but self-evident explanation. The judiciary make the binding determination what enactments might be unconstitutional. If someone makes a challenge, the court has created a standard of review of presumption of constitutionality and placing a heavy burden of persuasion upon the challenger. That said, an unconstitutional law is never constitutional until a court says otherwise. The court is merely declaring a fact that's been in existence since its inception. A law cannot be enacted in violation of the constitution, and any such enactment has always been void on its face because it is an attempt to do something it had no power to do in the first place. That misreads the Necessary and Proper Clause. If anything, it commands that the Congress properly fund so that the executive can perform his/her delegated powers. A law passed over veto that purports to deny the POTUS his/her delegated pardon power or any other delegated power does the exact opposite of performing what is necessary and proper so that the POTUS can perform his/her powers....it undermines and denies them by frustration of purpose. And you're incorrect that the executive is not empowered to create positions. Powers of the President of the United States - Wikipedia, the free encyclopedia Article Two of the United States Constitution - Wikipedia, the free encyclopedia