Flat fee issue:
Do you really want to incentivize the government to have offshore workers by making them profit centers for the government itself? How is that an incentive to avoid destroying domestic jobs?
I'd think more like saying "H1B hires cost 3x the prevail wage for a job as determined by industry". Anyone not willing to pay up triple the cost can hire back the same folks they are firing now to save a buck. Anyone claiming this is not about companies saving a buck is being disingenuous. If there is truly not a single domestic worker able to fill the role, then paying extra for it should not be a problem. Looking at employment rates, and layoff/offshoring announcements I think these problems would fix itself pretty quickly given the right financial incentive.