You’re overthinking this ,, an act is an act and words are words ... the max fine for words is $1m if you don’t believe me then read the NBA Constitution and bylaws , it’s available at http://mediacentral.nba.com/media/mediacentral/NBA-Constitution-and-By-Laws.pdf
You're looking at the wrong clause. Look at Article 24 which outlines the powers of the Commissioner. Clause (l): "The Commissioner shall, wherever there is a rule for which no penalty is specifically fixed for violation thereof, have the authority to fix such penalty as in the Commissioner’s judgment shall be in the best interests of the Association. Where a situation arises which is not covered in the Constitution and By-Laws, the Commissioner shall have the authority to make such decision, including the imposition of a penalty, as in his judgment shall be in the best interests of the Association. The penalty that may be assessed under the preceding two sentences may include, without limitation, a fine, suspension, and/or the forfeiture or assignment of draft choices. No monetary penalty fixed under this provision shall exceed $2,500,000."
Sterlings infraction wasn't shooting his mouth off. His infraction was costing the NBA money and causing labor issues through shooting his mouth off. The 'best interest of the association' is whatever Silver says it is. The fine was within Silver's authority to levy, based on a document that Sterling himself agreed to. Sterling can sue over this but he's going to lose.