The 2-4 decoder will always have an output active, this active output will drive the enable pin on the 4-16 decoders. Depending on the IC that you are using for the 4-16 decoder, the enable pin will be either active high or active low. When the enable pin is not active, the 4-16 decoder will not decode the signal at all, and all outputs will be at their inactive state regardless of the input.