July 17, 2015
Europe’s Migration Crisis
Mixed Migration to Europe
Recently, more people have been trying to cross the
Mediterranean, using both the central route in the Strait of
Mixed migration has become a pattern in several regions
Sicily and increasingly, in 2015, the eastern route to
across the globe, including Europe. Mixed migration refers
Greece. Although it is impossible to know exactly how
to flows of various groups of people—such as economic
many individuals have attempted to cross, estimates from
migrants, refugees, asylum-seekers, stateless persons,
the United Nations High Commissioner for Refugees
trafficked persons, and unaccompanied children—who
(UNHCR) indicate a significant upward trend. In 2013,
travel the same route and use the same modes of
60,000 refugees and migrants are thought to have made the
transportation (see text box). Sometimes termed irregular
journey. In 2014, nearly 219,000 did so. By late June 2015,
migrants, such individuals do not have the required
137,000 people reportedly had reached southern Europe by
documentation such as passports and visas, and may use
boat (with the vast majority arriving in Italy and Greece).
smugglers and unauthorized border crossings.
Fatalities are also growing, from roughly 600 people in
2013 to 3,500 in 2014. Of the more than 1,800 believed to
There are numerous mixed migration routes into Europe,
have died in the first half of 2015, over 1,000 perished in
both over land and by sea. As seen in Figure 1, sea routes
two shipwrecks within the span of a week in April 2015.
cross the western, central, and eastern Mediterranean Sea.
Greece and Italy (including the islands of Sicily and
With the war in Syria in its fifth year, and with over 4
Lampedusa) are major points of arrival and transit, with
million refugees in neighboring countries, more Syrians are
many people seeking to travel onward to northern Europe,
trying to move to Europe by sea via Libya. Many Syrians
where they believe they are more likely to be granted
have also tried to reach Greece and Bulgaria via Turkey. So
asylum and receive better welfare benefits.
far in 2015, Syrians make up the largest group by
nationality crossing the Mediterranean, followed by
Figure 1. Main Mediterranean Sea Migration Routes
Eritreans and Afghans. Many of the others originate from
Iraq, Somalia, Nigeria, Sudan, and elsewhere in Africa.
The lines of distinction between groups in mixed migration
flows have raised questions about determination of status
and protection required. A key policy consideration is
whether the movement is voluntary or forced. While some
migrants may choose to leave their place of origin, refugees
and others may be forced to do so because of armed
conflict, ethnic strife, human rights violations, or natural
disasters, among other reasons. UNHCR asserts that most
of those arriving in Europe by sea are refugees.

Economic migrants are largely trying to escape poverty and seek
a better life. They do this legally or illegally, for the long term or
temporarily. In theory, they would receive the protection of their
government should they return to their home country.
Refugees are individuals who have fled their country of origin

because of a wel -founded fear of persecution for reasons of race,
religion, nationality, or membership in a particular social or
Source: Graphic created by CRS, based on information from
political group. Refugees are unwilling or unable to avail
“Everything You Want to Know About Migration Across the
Mediterranean,” The Economist, May 4, 2015.
themselves of the protection of their home government due to
fears of persecution. Once granted refugee status, a person has
Land routes into Europe include those via Turkey and the
certain legal rights and protections under international law.
Western Balkans, and along borders in the east with the
Asylum-seekers are people who flee their home country and
countries of Belarus, Moldova, Ukraine, and Russia. Many
seek sanctuary in another state where they apply for asylum, i.e.,
migrants and asylum-seekers are eager to reach European
the right to be recognized as a refugee. They may receive legal
countries that belong to the Schengen area, which allows
protection and assistance while their formal status is determined.
individuals to travel without passport checks among 26
Stateless persons are individuals who are not considered to be
participating states.
citizens of any state under national laws.
www.crs.gov | 7-5700

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Europe’s Migration Crisis
Growing Asylum Claims
relocating 40,000 Syrian and Eritrean asylum-
seekers currently in Italy and Greece, and
The number of individuals seeking asylum in the 28-
resettling 20,000 refugees, throughout the EU.
member European Union (EU) has been increasing steadily.
Several EU governments, however, objected
According to EU statistics, asylum applications have grown
to the proposed mandatory distribution
from 225,000 in 2008 to 431,000 in 2013 and almost
scheme and preferred a voluntary program.
626,000 in 2014. Some 80% of asylum claims in the first
EU member states have committed to the
quarter of 2015 were concentrated in five EU countries:
relocation and resettlement plans, but leaders
Germany (40%), Hungary (18%), Italy (8%), France (8%),
will decide “by consensus” how to distribute
and Sweden (6%). Key countries of origin include Syria,
those eligible among EU countries.
Afghanistan, Eritrea, Ukraine, Kosovo, and Iraq.
• Stopping Migrant Smugglers. In late June
Under current EU rules governing responsibility for asylum
2015, the EU launched the first, intelligence-
applications (known as the “Dublin regulation”), the first
gathering phase of EUNAVFOR Med, a new
EU member state an asylum-seeker enters is usually
security mission aimed at dismantling human
responsible for examining that individual’s application. If
trafficking networks by patrolling the high
an asylum-seeker travels to another member state, he or she
seas for smugglers and ultimately seizing and
may be transferred back to the member state of arrival. The
disposing of their vessels. However, it is
recent surge in irregular migration to Europe has generated
unlikely that the EU will fully implement
frictions between “frontline” states, which argue that they
these operational plans without U.N. Security
are overburdened, and other EU countries, which charge
Council approval (which has been elusive
that some “frontline” authorities are not properly processing
because of objections from Russia and others)
asylum applications and essentially allowing migrants and
and the consent of the coastal states concerned
refugees to leave and seek asylum elsewhere in the EU.
(discussions with Libya have been difficult in
EU Responses and Challenges
the absence of a united government).
For many years, the EU has sought to develop a common
Longer-term EU priorities include: improving EU rates of
immigration and asylum policy, but progress has been slow
return for failed asylum-seekers and illegal migrants;
because of national sovereignty concerns and sensitivities
ensuring the full implementation of EU asylum rules
about minorities, integration, and identity. The rising death
(especially by promoting the systematic identification and
toll in the Mediterranean in the first few months of 2015
fingerprinting of all asylum-seekers); and developing a new
and the increase in asylum-seekers has prompted new EU
policy on legal migration to attract skilled migrants.
initiatives both to address the current crisis and to better
Nevertheless, as the EU seeks to forge a more coherent and
manage migration to the EU in the longer term. Some
robust response to the influx of migrants and asylum-
proposals, however, have produced considerable divisions
seekers, it will likely continue to struggle with equitable
among member states—especially between those on the
burden-sharing arrangements and the dual imperatives of
“frontlines” of the Mediterranean crisis in the south and
maintaining security and protecting human rights. Europe’s
those farther north and east—and raised serious questions
financial difficulties and the growing popularity of anti-
about EU solidarity. Immediate EU efforts have focused on:
immigrant political parties throughout Europe may also
constrain EU responses.
• Saving Lives. In late April 2015, the EU
tripled the funding and assets for EU maritime
U.S. Concerns
patrol operations Triton (in the central
Mediterranean) and Poseidon (in the eastern
U.S. officials are concerned about the crisis in the
Mediterranean). Both are led by Frontex, the
Mediterranean, viewing it as a potential threat to both
EU’s border management agency. Established
regional and European security. U.S. and EU policymakers
in late 2014, Triton replaced Mare Nostrum,
have agreed to expand dialogue on mixed migration and
an Italian mission credited with saving up to
voluntary resettlement programs (especially in response to
150,000 at sea and arresting over 300 human
the Syrian crisis), and on possible joint initiatives to
smugglers over the previous year. With fewer
increase protections to persons most in need. Some U.S.
ships and aerial capabilities, a smaller budget,
officials also worry that Islamist terrorists could enter
and a more limited operational area, Triton
Europe illegally on migrant boats, noting that Italian
was criticized as being far less effective than
authorities arrested a young Moroccan man—who may
have traveled to Italy on a migrant ship—in relation to the
Mare Nostrum. According to UNHCR, the
March 2015 terrorist attack on a museum in Tunisia.
EU’s decision to strengthen its operations in
the Mediterranean helped decrease fatalities
Kristin Archick, karchick@crs.loc.gov, 7-2668
significantly in May and June 2015.
Rhoda Margesson, rmargesson@crs.loc.gov, 7-0425
• Protecting Refugees and Improving

Burden-Sharing. In May 2015, the European
IF10259
Commission (the EU’s executive) called for
www.crs.gov | 7-5700

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