Years of work and ardous debate went into the writing of the 1986 Immigration Reform and Control Act, a vast revamping of the law aimed above all at stemming the flow of undocumented immigrants. Yet the flood of unauthorized entries continued to grow unabated. A new law signed in November, 1990 allowed increasing numbers of immigrants with a flexible cap of about 700,000. Yet 1991 entries reached over one million. What is it about immigration policy that makes it so ineffective?