Yes, but federal agencies pressuring every state to pass a law that is unconstitutional for the Congress to pass is a way of de-facto passing that law on a federal level.
Suppose the ATF declared that no additional FFLs would be granted or renewed to anyone in a state that didn't adopt mandatory gun registration. While the congress may not be able to pass a federal registration, it would be a de-facto federal mandate and likewise unconstitutional.
My opinion, though. I admittedly have not done the research on this subject.