In May 2006, he proposed a five-point plan that would increase border security, establish a guest worker program, and create a path to citizenship for the twelve million illegal immigrants living in the United States. The Senate passed the Comprehensive Immigration Reform Act of 2006, which included many of the president's proposals, but the bill did not pass the House of Representatives. After Democrats took control of Congress in the 2006 mid-term elections, Bush worked with Ted Kennedy to re-introduce the bill as the Comprehensive Immigration Reform Act of 2007. However, the senior leadership of the Taliban and al-Qaeda, including bin Laden, avoided capture. Karzai would remain in power for the duration of Bush's presidency, but his effective control was limited to the area around Kabul, as various warlords took control of much of the rest of the country. While the Karzai's government struggled to control the countryside, the Taliban regrouped in neighboring Pakistan.