The premise behind offering to allow a rise in naturalization is one of compromise. If the dems would abandon their position of converting the illegals(10-20 million) to greencard holders to naturalization to citizen, Bush would a back, let's say for discussion purposes, a 1 million increase in naturalization.
That's a good compromise, especially if it would split enough dems away from the official party position.
The Bush plan stipulates an annual increase.