Do entities with explicit power have more influence than those entities with implied powers in making public policy?

Based on the American “constitution,” which internal and external stakeholders, in the policy making process, possess “constitutional legitimacy” for their role in making public policy? Do entities with explicit power have more influence than those entities with implied powers in making public policy? Should they? Why or why not?
I think this question is a bit more philosophical than previous ones. Several different approaches I see as plausible (there are more trust me!):

– You could discuss the role of lobbyists, the public and other agents trying to influence the process

– You could examine the tension between various agents–the executive branch, the legislative, the courts, states etc

– You could even tackle the rise and role of the various agencies that have sapped some of the legislative punch in law making.

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