Do entities with explicit power have more influence than those entities with implied powers in making public policy? Should they? Why or why not?

just like 500 words which is like 1 page… they didn’t say as long as the questions are answered

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?