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Yes , Congress created those agencies, and since Congress created them, Congress can elect how much power they have. (Of course not more than their own power) Congress will let those agencies know when they over step their bounds. Why would Congress tell FAA "The Administrator of the Federal Aviation Administration may not promulgate any rule or regulation regarding a model aircraft, or an aircraft being developed as a model aircraft". ? If they weren't over stepping bounds?Wrong, wrong, wrong. Unfortunately.
The Congress of the US can create 'agencies'. Some of these are more well known than others. They include EPA, OSHA, IRS, and...wait for it...the FAA. These agencies can formulate regulations based on their 'charter' or area of interest. People have regularly challenged these agencies as unconstitutional and have lost just about every single case. What the FAA says is now law, is now law.
This is going to take a test case to find out.