Updated September 20, 2018
Overview of the Global Humanitarian and Displacement Crisis
The world is experiencing what many experts say is an
Some populations move voluntarily while others are forced
unprecedented humanitarian and displacement crisis. The
to flee. Migrants, who often leave poverty and
U.N. Office for the Coordination of Humanitarian Affairs
unemployment to seek better opportunities or family
(UNOCHA) reported that in 2018 more than 134 million
reunification, numbered approximately 258 million in 2017.
people worldwide required humanitarian assistance and
Refugees and others displaced involuntarily often face a
protection as a result of conflict and disaster. The United
different set of circumstances. Instead of choosing to leave
States is the single largest donor, consistently providing
their place of origin, they may be forced to do so for
nearly one-third (more than $7 billion in FY2016 and $9.3
reasons such as armed conflict, ethnic strife, violence,
billion in FY2017) of total global humanitarian assistance.
human rights violations, or natural disasters. For many,
Congress enacted $9.4 billion for global humanitarian
their status is uncertain, leaving them at risk of exploitation.
accounts in FY2018.
Figure 1. Refugees and IDPs, as of 2015
Types of Crises and Affected Populations
According to the U.N. High Commissioner for Refugees
(UNHCR) in 2017, more than 68.5 million people were
forcibly displaced worldwide due to armed conflict,
widespread or indiscriminate violence, and/or human rights
violations. Those displaced included 25.4 million refugees,
3.1 million asylum seekers, and 40 million Internally
Displaced Persons (IDPs). UNHCR estimates that 10
million people remained stateless. Large, forcibly displaced
populations included Syrians, Afghans, Rohingya,
Colombians, Congolese, Iraqis, Nigerians, Somalis,
Sudanese, South Sudanese, and Yemenis. Millions of
people a year are also affected by natural disasters and often
require prolonged and urgent assistance. These events may
be sudden (such as earthquakes or storms) or protracted
(like drought conditions). On average, 26 million people are
displaced annually due to disasters.
Key Populations of Concern
Refugees, who have fled their country of origin because of a
well-founded fear of persecution for reasons of race, religion,
nationality, or membership in a particular social or political
group. Refugees are unwilling or unable to avail themselves of
the protection of their home government due to fears of

persecution. Once granted refugee status, a person has
Source: Created by CRS using data from UNHCR and IDMC.
certain rights and protections under international law.
U.S. Policy
Asylum-seekers, who flee their home country and seek
The United States is a major contributor to humanitarian
sanctuary in another state where they apply for asylum, i.e.,
relief efforts in international crises and disaster situations.
the right to be recognized as a refugee. They may receive legal
The key U.S. agencies providing humanitarian assistance
protection and assistance while their formal status is
include the U.S. Agency for International Development, the
determined.
Department of State, and the Department of Defense. In the
Returnees, who are refugees voluntarily returned to their
past five fiscal years (FY2013–FY2017), the United States
country of origin.
has provided over $36 billion in humanitarian assistance.
Internally Displaced Persons (IDPs), who have been forced
from their homes often for many of the same reasons as
Congress has given the President broad authority on
refugees but have not crossed an international border.
humanitarian issues and flexibility to respond to disasters
Stateless persons, who are not considered to be citizens of
with a wide range of assistance. On a bipartisan basis, it has
any state under national laws.
consistently supported humanitarian efforts as a means of
responding to natural disasters and conflict-induced crises
Other populations, such as children, women, the elderly, and
in the short term, mitigating humanitarian impacts, and
people with disabilities, who are particularly vulnerable.
promoting a U.S. presence.
https://crsreports.congress.gov

---

Overview of the Global Humanitarian and Displacement Crisis
In practice, the provision of U.S. humanitarian assistance is
raised questions about determination of status and
typically case and time specific and may include assistance
protection required. Even if they do not qualify as refugees,
through bilateral and multilateral mechanisms and
migrants may need some type of protection because they
humanitarian partners; protection activities for vulnerable
are fleeing other risks. Sometimes the status of a person
populations; support for countries and communities hosting
may change en route, but often the reasons that drive an
the displaced; encouraging donor contributions; and
individual’s decision to move are a complex mix of factors.
building response capacity. The plethora of humanitarian
States concerned about the economic burden of those
emergencies, including food security challenges, and
seeking help and the potential security issues resulting from
human displacement worldwide will likely continue to
uncontrolled migration (and raised in part because of the
demand the attention of the Administration and Congress.
threat of terrorism) insist on stricter enforcement of asylum
While the Administration’s FY2019 budget request for
and immigration policies, while others are concerned about
global humanitarian assistance totals $6.3 billion, roughly
international protection of those on the move.
33% less than FY2018 appropriated amounts, Congress
continues to support humanitarian aid through legislation.
Operational Constraints and Response. Displaced
populations in all areas of the world require protection, the
Selected Issues and Challenges
basis of which may be found in international humanitarian
Emergence of New Crises and Underfunding. A major
law and reflected in humanitarian assistance provided by a
challenge facing the humanitarian community is the
variety of actors and organizations. Local, regional, and
emergence of new crises (and additional requirements for
national authorities also often have a role in the provision of
existing ones), as in the four concurrent famine threats in
assistance, law enforcement, and access control. Security
Africa, many of which may result in lifesaving assistance
concerns can severely constrain humanitarian operations in
and protection activities taking precedence over long-term
areas of conflict posing risks for those needing assistance
investments and the search for durable solutions. In
and humanitarian personnel. Although preventing
addition to the global scale of the problem, chronic
displacement and creating solutions for those already
underfunding of U.N. and other humanitarian appeals
displaced are obvious bookends to the problem, sustaining a
means that urgent humanitarian needs frequently outpace
humanitarian response, building capacity within
available budgets for operations. The 2018 UNOCHA
governments and civil society, and creating resilience in
global appeal is at its highest ever—$25.28 billion—nearly
vulnerable populations remain daily challenges.
three times the amount five years ago.
Key International Humanitarian Meetings
Protracted Displacement. Refugees may be stranded in
other countries and IDPs may be separated from their
In May 2016, U.N. Secretary-General Ban Ki-Moon convened
homes for long periods. This is particularly the case with
the first U.N. World Humanitarian Summit in Istanbul, Turkey,
respect to large, protracted displacements, where armed
which brought together thousands of stakeholders
conflict continues and a political solution proves elusive.
representing 173 countries to address the unprecedented
The global population of those forcibly displaced has
challenges facing the global humanitarian system. A key
increased by 75 percent in the past two decades, and on
outcome was the signing of a “Grand Bargain,” which aims to
average, a person is displaced as a refugee for 20 years. The
make aid more efficient and effective, to include greater local
combination of new crises and old conflicts places heavy
and national participation and partnerships, and to establish
demands on governments and communities that are hosting
coherence between humanitarian and development responses.
large, long-term displaced populations particularly since
these populations are often not confined to camps. National
governments have the primary responsibility for all
In addition, at the U.N. General Assembly High-Level
displaced people in their territory; however, in many cases
Plenary Summit on Refugees and Migrants in September
they are unable or unwilling to fulfill this obligation,
2016, world leaders agreed to the “New York Declaration,”
creating challenges for those aiming to assist IDPs. In 2017,
which aims to save lives, protect rights, and share
some of the largest numbers of IDPs were in Iraq, Syria,
responsibility for refugees and migrants on a global scale. As a
Sudan, the Democratic Republic of the Congo, and
complement to this event, President Obama co-hosted a
Colombia. The top countries hosting refugees included
Leaders’ Summit on Refugees to ask nations to increase
Turkey, Pakistan, Lebanon, the Islamic Republic of Iran,
their efforts to respond to the global displacement crisis.
Uganda, and Ethiopia. A key related issue is the level of
Participants agreed to increase contributions to U.N. appeals;
refugee admissions into major donor countries.
expand options for resettlement and other legal channels of
admission; and improve access to education for one million
Mixed Migration. An emerging challenge stems from
refugee children and lawful work for one million refugees.
“mixed migration” where flows of different groups of
Building on these 2016 meetings, negotiations between U.N.
people—such as economic migrants, refugees, asylum
member states began on two global compacts—a Global
seekers, stateless persons, trafficked persons, and
Compact on Refugees (GCR) and a Global Compact on
unaccompanied children, usually in a mix of nationalities or
Safe, Orderly and Regular Migration (GCM). The
ethnic groups—travel the same route and use the same
United States announced in December 2017 that it was ending
modes of transportation. Many of these individuals do not
its participation in the GCM.
have the required documentation, and may use unauthorized
border crossings or involve smugglers to do so. The lines of
distinction within these groups have caused confusion and
https://crsreports.congress.gov

---

Overview of the Global Humanitarian and Displacement Crisis

IF10568
Rhoda Margesson, Specialist in International
Humanitarian Policy


Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.

https://crsreports.congress.gov | IF10568 · VERSION 10 · UPDATED

---