Clause 2 affects clause 4, and it just causes a restriction that is unnecessary in dealing with those emergencies. If you're dealing with an emergency in clause 5 and you have to apply subclause 4(2) to clause 5, you're really putting a rock around the minister's ankle.
At the end of the day, the final arbiters on the behaviour of the minister or the government are the people of Canada during an election. They will say thumbs up or thumbs down, and we all live or die by that sword.