the 1st Amendment: "Through his performance of the duty to recommend measures to Congress, the president functions as the agent of a diffuse electorate who seek the redress of grievances. To muzzle the president, therefore, is to diminish the effectiveness of this right expressly reserved to the people under the first amendment." Kesavan and Sidak also cited a Professor Bybee who stated in this context: "The Recommendation Clause empowers the president to represent the people before Congress, by recommending measures for the reform of government, for the general welfare, or for the redress of grievances. The Right of Petition Clause prevents Congress from abridging the right of the people to petition for a redress of grievances." The Recommendation clause imposes a duty, but its performance rests solely with the president. Congress possesses no power to compel the president to recommend, as he alone is the "judge" of what is "necessary and expedient." Unlike the Necessary and Proper Clause of Article I, which limits Congress's discretion to carrying out only its delegated powers, the phrase "necessary and expedient" implies a wider range of discretion for the president. Because this is a political question, there has been little judicial involvement with the president's actions under the clause as long as presidents have not tried to extend their legislative powers. In Youngstown Sheet & Tube Co. v. Sawyer (1952), the Supreme Court noted that the Recommendations Clause serves as a reminder that the president cannot make law by himself: "The power to recommend legislation, granted to the president, serves only to emphasize that it is his function to recommend and that it is the function of the Congress to legislate." The Court made a similar point in striking down the line-item veto in Clinton v. City of New York (1998). When President Bill Clinton attempted to shield the records of the President's Task Force on Health Care Reform as essential to his functions under the Recommendations Clause, a federal circuit court rejected the argument and noted in Ass'n of American Physicians & Surgeons v. Clinton (1993): "[T]he Recommendation Clause is less an obligation than a right. The president has the undisputed authority to recommend legislation, but he need not exercise that authority with respect to any particular subject or, for that matter, any subject." Clause 3: Extraordinary sessions and prorogation of Congress To allow the government to act quickly in case of a