What's so hard to comprehend in this statement? Is it the same as, "...shall not be infringed." ??? Blackbird.
The statement on its own is, as Bork says, an inkblot.
To understand the statement is to understand the tension between the federalists and the anti-federalists or more precisely those who would choose to vest supreme power in the federal government or those who believe that government closest to the people is the best government.
I fall in the second category. I don't want 9 supreme court justices in DC dictating to government closest to the people.