It is rational that the people or organizations that are most effective at deploying capital would have the most employees.
If we really want to create jobs and find the true maximal level of employment in the economy, then we are obliged to find a way to take money away from the most efficient producers in the economy.
I propose that we add a layer of taxation, which I will call a "corporate" tax, on the profits of the collective efforts of a group of like minded individuals.
In this way, by discouraging people from pooling their capital in search of a more productive output, we will induce a lower than normal ceiling on maximal employment, thus creating the need for agencies to look out for these underemployed people.
One way we could put these unemployed people to work is by mandating the use of labor-intensive ethanol fuel in all gasoline sold in the country.
In this manner we could transfer money from a more productive to a less productive part of the economy, creating what Lewis et al have termed a "dynamic tension" of artificially produced employment and unemployment.