May 18 (Bloomberg) -- Senator Edward M. Kennedy, a leader in forging a bipartisan compromise to overhaul U.S. immigration law, may have a tougher time selling the plan to fellow Democrats than to Republicans.

His first stop could be the office of Senate Majority Leader Harry Reid, who said in a statement he had ``serious concerns.'' In remarks on the Senate floor, Reid questioned whether ``we're going to be able to pass it.'' Some Republicans were dissatisfied as well, calling the plan thinly disguised amnesty for illegal immigrants.

``Only a bipartisan bill will become law,'' Kennedy said. ``We owe it to the American people to stop talking about immigration and start acting.''

The compromise, in accommodating Republicans who insist on tougher enforcement and provisions favored by U.S. businesses, may risk losing the support of Democrats sensitive to the concerns of Hispanic immigrants and organized labor. Democrats expressed doubts over provisions to create a temporary-worker program and to reduce the emphasis on uniting families when deciding which legal immigrants are admitted to the U.S.

Attendance at Kennedy's news conference yesterday to announce the deal underscored the political difficulty he faces. Only two Democrats, Ken Salazar of Colorado and Dianne Feinstein of California, were at his side. By contrast, seven Republican senators and two Bush administration Cabinet secretaries were at the podium.

Core Provisions

The legislation would expand border fences and beef up patrols, crack down on employers who hire illegal immigrants and give about 12 million undocumented aliens a chance for citizenship. They would have to pay $5,000 fines, learn English and avoid criminal charges to earn permanent resident status over eight years.

``There are a lot of Democrats who want to see it improved,'' said Senator Charles Schumer of New York, a Democratic leader. The measure is ``far to the right'' of legislation the Senate passed last year and was shelved in the House, said Senator Bob Menendez, a New Jersey Democrat.

John Sweeney, president of the AFL-CIO organized labor umbrella group, condemned the agreement. In a statement, he said it strikes at ``the reunification of families'' and expands temporary-worker programs that can amount to ``virtual servitude.''

Temporary Workers

As many as 400,000 temporary workers a year would be allowed to come for three two-year stays in the U.S., interrupted by year-long returns to their home country. They could earn points toward getting legal status to remain in the U.S.

While many Republicans praised the plan, there were skeptics. ``I do not believe amnesty or even indirect amnesty is the answer,'' said Senator Charles Grassley of Iowa. ``Rewarding illegality only promotes illegality.''

Democrats voiced discomfort with a proposed point system to award preferences for legal immigrants with special job skills and educational credentials.

``I'm a little concerned,'' said Maryland Senator Ben Cardin. Low-wage workers seeking to reunite with their families could suffer, he suggested.

Kennedy won a concession from Republicans that would award points to some low-skilled workers, such as home health- caregivers for the elderly. Sixty percent of future immigration would still be based on family ties, he said.

As for undocumented immigrants in the U.S., they could begin to seek legal status only after the government improved border security and adopted a system for employers to verify the legal status of new hires.

Returning Home

The heads of immigrant households would have to return to their home country for a brief period before coming back to the U.S. to secure legal status.

Democrats control the chamber by a 51-49 margin and normally it takes 60 votes to pass controversial legislation by shutting off a filibuster, or unlimited debate.

Senate Republican leader Mitch McConnell, sounding more upbeat than Democratic leader Reid, said there is ``reason for optimism'' the Senate would pass the ``landmark piece of legislation.''

House Speaker Nancy Pelosi, a California Democrat, said in a statement she has ``serious concerns.'' At a news conference, she said the House plans to debate a different version of the legislation before its August recess.

Advocacy Groups

Advocacy groups and labor organizations that are part of the Democrats' core constituency expressed a range of reactions.

Democrats ``had to make concessions we found troubling,'' said Frank Sharry, executive director of the Washington-based National Immigration Forum. ``This is only the beginning, not the end.''

``There are promising elements in the agreement'' as well as ``many deeply troubling aspects,'' said Thomas Snyder, political director of UniteHere!, a New York-based coalition of restaurant and hotel-workers unions.

New York Senator Hillary Rodham Clinton, a leading candidate for the 2008 Democratic presidential nomination, said she will study the proposal to make sure it ``does not lead to the creation of a new underclass in our country.''

Her leading rival for the Democratic nomination, Illinois Senator Barack Obama, told reporters the temporary-worker plan and the merit-based point system must be ``carefully examined'' to ensure they are ``just and humane.''

Senator Lindsey Graham, a South Carolina Republican, said Congress must act now or 12 million illegal immigrants will ``continue to live in fear, not less fear, but more fear.'' And, he said, ``Our borders continue to be broken in a time when we need to secure our country.''

Graham predicted the plan would win overwhelming support in the Senate with 75 of the 100 senators voting for it.

To contact the reporters on this story: James Rowley in Washington at jarowley@bloomberg.net;

Last Updated: May 18, 2007 09:10 EDT