Bush Pushes Guest-Worker Program

But the president in his speech made plain that he is sympathetic to people, particularly in border states such as Arizona and New Mexico, who view illegal immigration largely as a social and economic burden and want a get-tough approach. His emphasis on border security marked a rhetorical shift. Previously, Bush spent more time touting a guest-worker program that would ease the way for undocumented immigrants to stay in the United States.

Democrats also are divided on the issue, as the Democratic governors of New Mexico and Arizona have declared states of emergency because of the influx of illegal immigrants. Bush's decision to emphasize border security disappointed some immigration advocates, who said that the nation's huge investments in new Border Patrol agents, electronic sensors, infrared imaging devices and border barricades have not stemmed the problem.

"Over the past decade our nation has taken unprecedented steps to secure the border," said Bishop Gerald Barnes, chairman of the U.S. Conference of Catholic Bishops' Committee on Migration.

"But the number of undocumented has more than doubled, and the number of deaths in the desert has risen dramatically. Clearly, a more comprehensive approach which emphasizes legal status for migrants and legal channels for migration is needed."

Many legislative leaders say they agree that a comprehensive approach is needed, but which one is a matter of competition. A bill written by Sens. John McCain (R-Ariz.) and Edward M. Kennedy (D-Mass.) and another by Sens. Jon Kyl (R-Ariz.) and John Cornyn (R-Tex.) offer guest-worker programs, but the first bill allows illegal immigrants already in the country to stay and work if they pay a hefty fine, and the other would force them to leave in five years and come back to participate in any program. Senate Majority Leader Bill Frist (R-Tenn.) said the chamber will attack the issue early in the new year.

Whatever the outcome, said Tamar Jacoby, a conservative Manhattan Institute expert on immigration, it was time for the president to take the lead.

"He has offered a very detailed plan for intensified enforcement on the border and in the interior," she said. "That should meet voter concerns about immigration getting out of control. This is the president finally using the bully pulpit and his political capital."

Fears reported from Washington.