The problem with your solution (and similar solutions - e.g. implementing "salary auction" for H1B - i.e. it's not a lottery, but it's that the most paid get the visa) is:
It requires changing the law.
Which is very difficult, and requires a broad coalition in 2 houses of parliament.
On the other hand, executive orders are very easy.
I wish the better solutions get implemented, but until they are, we have to seek alternatives.
> Which is very difficult, and requires a broad coalition in 2 houses of parliament.
In the current moment the same party controls all three branches of government.
There's a more basic reality that the idea I'm mentioning simply wouldn't be popular. I just think that people talk about market forces in these discussions and the lock-in effect is so clearly something that's affecting the market, yet not mentioned nearly enough IMO.
There's a straightforward solution here. Right now H-1Bs are a way for companies to lock in employees by leveraging the visa status.