The U.S. system is insane because Congress never had the votes to create a skilled immigration system designed to be a path to permanent residency. Republicans voted against the 1990 law. And Democrats were split. The law was opposed by labor organizations. The law that passed was very watered down compared to what the tech company lobbyists had wanted.

The 1990 law ultimately passed 231 to 192. It likely would never have passed if it had removed H1 from the “temporary worker” category and turned it into an immigrant visa with a clear path to citizenship.