Hmm... I thought it was a Guest Worker Program, and that the following paragraph explains the difference.
"Some temporary workers will make the decision to pursue American citizenship. Those who make this choice will be allowed to apply in the normal way. They will not be given unfair advantage over people who have followed legal procedures from the start. I oppose amnesty, placing undocumented workers on the automatic path to citizenship. Granting amnesty encourages the violation of our laws, and perpetuates illegal immigration. America is a welcoming country, but citizenship must not be the automatic reward for violating the laws of America."
This is amnesty in the traditional sense of the word. Millions of current illegals will be granted pardon and allowed to remain. Their previously illegal behavior has been rewarded by this program.
In the political sense, amnesty has come to be associated with granting citizenship. I should probably have refrained from using the word, knowing the context in which it generally appears.