“[E]very act of a delegated authority, contrary to the tenor of the

commission under which it is exercised, is void. No legislative act,

therefore, contrary to the Constitution, can be valid. To deny this,

would be to affirm, that the deputy is greater than his principal; that

the servant is above his master; that the representatives of the people

are superior to the people themselves; that men acting by virtue of

powers, may do not only what their powers do not authorize, but what

they forbid.”