If these visas are supposed to be granted to workers whose American counterparts are not available for whatever company wants to hire them, why make it so difficult? If this lottery thing is supposed to prevent American companies from exploiting foreign workers, you could simply force those companies to pay American grade salaries, instead of implementing some Kafkaesque workaround.
Because if everyone were honest with themselves they'd see H1B is just a tool to depress american IT/developer salaries. There is no shortage of Americans looking to fill these roles.
