There are many clauses in the
Constitution that do not accomplish that for what may have been
intended, which is conjectural. The Constitution has the clauses
written they way they are, effective or not. Just because we have
a theory of what they should have intended or meant doesn't mean
that's what the words actually mean.
Consider some other ineffective clauses:
1. Election of U.S. senators by state legislatures. Never worked
as intended, despite popular myth to the contrary.
2. Failure to make clear that all the Bill of Rights, except the
First, applied to the states and created a jurisdiction for U.S.
courts.
3. Failure to define "direct" and "indirect" taxes.
4. Failure to make clear Congress did not have the authority to
make anything legal tender on state territory.
5. Failure to define "commerce" or what is or is not "necessary
and proper".
6. Failure to make clear that the vice-president would not preside
in his own removal trial.
7. Failure to define "in all cases" for the legislative power in
the District of Columbia.
8. Failure to make clear the U.S. government does not have eminent
domain power for state territory.
9. Failure to make clear that the "Welfare Clause" was only a
restriction on the power to tax (and spend), not a separate grant
of power.
10. Failure to define "for limited times" for patents.
I could go on and on, but this is a sample.
I have proposed corrections for some of the worst of these flaws
at
http://constitution.org/reform/us/con_amend.htm