As an initial matter, Congress may not simply "commandee[r] the legislative processes of the States by directly compelling them to enact and enforce a federal regulatory program." Hodel v. Virginia Surface Mining & Reclamation Assn., Inc.(1981). In Hodel, the Court upheld the Surface Mining Control and Reclamation Act of 1977 precisely because it did not"commandeer" the States into regulating mining. . . .