Get thee to a nunnery!
Without historical context, it's meaningless.
Only congress is congress, no other branch, arm, or entity is addressed.
The concept of enumerated powers implies that the legislature may exercise only those powers that are stated in the Constitution, limited, of course, by the Bill of Rights and the other protections found in the Constitutional text.
The judiciary does not make law, it can only rule on the constitutionality of a law.
Anything outside those bounds is a perversion of law and unconstitutional on its face.