The key point that needs to be made, in addition to the numbers being wrong, is that Bush was not legalizing illegals in opposition to law and the will of the people, but interpreting existing law as to whether the amnesty included certain people. You can agree or disagree with Bush's interpretation, but if you did, you could take him to court. And as it turns out, the Congress agreed, passing a law endorsing Bush's interpretation.
Bush did not make law out of whole cloth, nor refuse to enforce existing law that he personally disagreed with.