Who first proposed a guest worker program?
It was George W Bush. When he did the Democrats in Congress wanted none of it.
Just as when he went on the Hill to warn Congress about the impending economic collapse brought on by the mortgage and derivative markets. Democrats in Congress denied any problems existed and even ran cover for fraudsters the likes of Franklin Raines.
Just as Congress did when he wanted to fix SS, and the list goes on.
Congress will always drag its feet until a crisis exists takes the politically expedient path which generally results in the worst possible legislation.