Re-read the sentence you posted. He says LEGISLATION to secure the border must be passed before passing LEGISLATION on amnesty.....not that the border has to actually be secured and proven secured before event taking up any further action. Graham is a weasel word-smith. Don't fall for it.
How about when he came out last year and said he was for changing the constitution so illegals kids will not automatically become citizens upon birth, when we already don't make American Indians and diplomats citizens upon birth?
Proposing something that is un-needed that has zero chance of even getting started just to pose as tough on illegal immigration when Graham-esty is the amnesty king is another great example.