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Ok this is something I gave a lot of thought about. The mention of "congress" means you want a specific American answer, but I think the same logic can be applied everywhere, because all human cultures function according to similar principles.
Meaning if you have a population of 100 million you can take up to 500k new people every year.
Less than 0.1% it means you country is undesirable. More than 0.5% you will have trouble integrating all the new people. And integration is the main problem, You need an influx of new people big enough so you generate new ideas and new cultures, bur low enough to prevent formation of separate immigrant communities.