By JULIE HIRSCHFELD DAVIS, Associated Press Writer

WASHINGTON - The Bush administration and key senators are struggling to agree on draft legislation to secure the U.S.-Mexico border before putting millions of illegal immigrants on a path to citizenship that could take 13 years.

Even then, immigrants would have to leave the country and pay large fines before gaining legal status.

Officials familiar with the discussions say that despite concessions by both Republicans and Democrats, a final agreement may not come before the Senate opens debate on the issue next week - if at all.

Still, the outlines of a possible deal have taken shape in almost daily secret talks attended by two members of President Bush’s Cabinet. As contemplated, the proposal would bar undocumented immigrants from gaining legal status until the administration beefs up border security and implements a high-tech identification system for temporary workers. The same trigger would apply to new immigrants seeking temporary visas as guest workers. Such measures are expected to take up to two years.

Even after that, officials said it could take more than a decade before the 12 million men, women and children estimated to be in the U.S. illegally could get permanent legal status, or green cards. First the government would clear an existing legal immigration backlog, a task estimated to take eight years. Then the government would begin processing green cards for the 12 million here illegally, expected to take another five years.

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