By that I mean non 'work' visa---the regular visa lottery system, L1 and L2 visa holders, and everyone who would fall in the E2, E3, E4 visa category for having

By that I mean non 'work' visa---the regular visa lottery system, L1 and L2 visa holders, and everyone who would fall in the E2, E3, E4 visa category for having <= 5 years of experience. And added on that temporary work permit that'd be suitable for contractors. The USA issues over 3 million visas under which work is permitted per year, so I wonder why isn't there room in the existing legislative framework to accommodate skilled workers without having them be given H1-B.