Congress has made a law stating that you cannot grow wheat on your land without The US govern-cement consent. You are not allowed to grow wheat, because it may leave your property and may then cross state borders. And this was done long ago. Q.E.D.
So, although they might have intended to limit govern-cement.
All laws necessary and proper means anything those in congress feel are necessary and proper.
What Congress does now is so far removed from what the Framers intended... It's basically not a deliberative body anymore so much as bad theatre!