The current system is unfair to Indians and Chinese, so they are trying to fix that with the bill. At the same time, they put in that text to make it so that pe

The current system is unfair to Indians and Chinese, so they are trying to fix that with the bill. At the same time, they put in that text to make it so that people from other countries who are already in the queue are not adversely affected, so it eases in the transition over two years so that people from other countries applying in the next few months don't have to wait for decades.