That's the key. A legal"guest worker" program that can be enforced and pays for itself. Bush gets it, but the panderers in Congress don't. And since they pander to several different groups, nothing is likely to happen. Shame on all of us.
The penalty has to be on the employer when the "guest worker" decides not to return. The employer should have to put up a bond for each worker, and forfeit the bond if the worker elects not to return at the end of their work visa.
Also, the employer should be responsible for all liability for the worker (auto, health, etc.) while the worker is in our country. Nobody else (i.e. local taxpayers) should have to contribute to the employer trying to keep their costs down.
When an employer adds up the additional costs that he normally shifts on to everyone else, maybe the employer will find that its cheaper to raise what they are paying and hire American.