Updated January 11, 2019
Global Refugee Resettlement: Selected Issues and Questions
As the number of refugees worldwide reached
opinion, is outside of the country of his nationality and is
unprecedented levels in recent years, Congress has
unable or, owing to such fear, is unwilling to avail himself
demonstrated a continued interest in refugee resettlement,
of the protection of that country.” A cornerstone of the
although such opportunities are available to only a small
Refugee Convention is the principle of “non-refoulement,”
percentage of the global refugee population. This report
which means that a refugee should not be returned to a
does not discuss the refugee admissions process to the
country where he or she faces serious threats to his or her
United States (for more information, see CRS Report
life or freedom. An asylum-seeker is someone who has
RL31269, Refugee Admissions and Resettlement Policy.)
applied for refugee status but whose claim has not yet been
definitively evaluated.
Current Refugee Crisis
The U.N. Office for the Coordination of Humanitarian
Once an individual is considered a refugee, that individual
Affairs (UNOCHA) anticipates that in 2019 more than 132
automatically has certain legal rights, and states that are
million people worldwide will require humanitarian
States Parties to the Refugee Convention and/or its 1967
assistance and protection as a result of conflict and disaster.
Protocol are obligated to provide certain resources and
U.N. High Commissioner for Refugees (UNHCR, see text
protection. UNHCR is mandated to lead and coordinate
box) reported in 2018 that more than 68.5 million were
international action for the protection of refugees and the
forcibly displaced worldwide due to armed conflict,
resolution of refugee problems worldwide.
widespread or indiscriminate violence, or human rights
violations. Those displaced included 25.4 million refugees,
Refugee Status Determination (RSD) is the legal or
3.1 million asylum seekers, and 40 million Internally
administrative process by which governments or UNHCR
Displaced Persons (IDPs). The United States is the largest
determine whether a person seeking international protection
donor of humanitarian assistance, consistently providing
is considered a refugee under international, regional, or
nearly one-third of total global contributions (more than $7
national law. Countries have the primary responsibility for
billion in FY2016, $9.3 billion in FY2017, and $9.4 billion
determining the status of asylum-seekers, but UNHCR may
in FY2018). For FY2019, the House and Senate versions of
do so when countries are unable or unwilling. During mass
proposed legislation for global humanitarian assistance are
movements of refugees (usually as a result of conflicts or
each above $9.1 billion.
generalized violence as opposed to individual persecution),
individual asylum interviews cannot be conducted for
U.N. High Commissioner for Refugees
everyone who has crossed the border. In such cases, it is
Established by the U.N. General Assembly in 1950, UNHCR is
generally evident why people have fled. As a result, with
mandated to provide legal protection, implement long-term
the agreement of the host country, these groups are often
solutions, and coordinate emergency humanitarian relief for
declared “prima facie” refugees.
refugees and other displaced persons around the world.
UNHCR works with governments to seek permanent
Refugee resettlement
solutions to refugee situations and prefers voluntary
Resettlement is the transfer of refugees from a country
repatriation, whereby refugees return to their home
where they have received temporary asylum to another
countries. If repatriation is impossible, then UNHCR seeks
country that has agreed to admit them and ultimately grant
either local integration or resettlement in a third country.
them permanent settlement with legal and physical
UNHCR depends almost entirely on voluntary contributions
protection, including access to civil, political, economic,
to fund its operations. The United States is UNHCR’s largest
social, and cultural rights similar to those enjoyed by
donor, with U.S. funding provided primarily through the
nationals. It generally leads to permanent resident status or
Migration and Refugee Assistance (MRA) account in annual
even citizenship in the resettlement country. There may be
State/Foreign operations appropriations.
many reasons for resettlement. In most cases, there is no
prospect for repatriation or local integration, and the
situation in the host country may create particular
Key Concepts and Definitions
protection concerns for the individual.
Defining refugees and asylum seekers in an
The refugee resettlement process typically involves
international context
UNHCR and the government of the resettlement country:
Under the 1951 Convention Relating to the Status of
Refugees (Refugee Convention), a refugee is legally
1. UNHCR registration (often includes taking biometrics);
defined as a person fleeing his or her country because of
2. UNHCR Refugee Status Determination (RSD);
persecution or “owing to a well-founded fear of being
3. UNHCR identification of a need for resettlement;
persecuted for reasons of race, religion, nationality,
4. resettlement country RSD and admissibility procedures;
membership of a particular social group or political
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Global Refugee Resettlement: Selected Issues and Questions
5. clearances by resettlement country; and
ï‚· timing (normal, urgent, emergency);
6. travel (reception and integration in resettlement country).
ï‚· availability of quota or places;
ï‚· refugee input (but the refugee cannot choose); and/or
Of the millions of refugees of concern to UNHCR globally,
ï‚· prior agreement with a resettlement country.
less than 1% is submitted for resettlement. The number of

global resettlement places available for UNHCR-submitted
Countries vary in their approach and priorities with regard
cases is significantly smaller than the refugee population,
to resettlement, depending on the individual case and
but experts view it as an important tool of refugee
circumstance. The type of submission is determined in part
protection and response. Resettlement can also be a way for
by whether the case involves an individual or a group. With
governments to demonstrate they are carrying some of the
many individual cases, UNHCR will have a history of
burden of the impact of refugees, even symbolically, with
refugee status (bio data and other information). If the
host countries and among other donor countries.
person arrived as a “prima facie” refugee, registration
What makes a refugee eligible for resettlement?
would have taken place in a camp or at a point of arrival,
but more information and review would be required for
Refugees identified for resettlement usually fall into a
resettlement purposes, often making it more difficult to
category of need or vulnerability, such as (1) legal or
meet the criteria for resettlement.
physical protection; (2) lack of foreseeable alternative
durable solutions; (3) survivors of violence or torture; (4)
How is security addressed during resettlement?
women and girls at risk; (5) medical needs; (6) family
UNHCR screens for exclusion factors when it conducts
reunion; and (7) children and adolescents.
RSD interviews (which it does on each refugee referred to
How many countries resettle refugees?
the United States). This means that, based on whatever
information it has, UNHCR conducts its own assessments
An average of 36 countries, including the United States,
(e.g., to make sure that the person is eligible for refugee
annually take part in UNHCR’s resettlement program. The
status under the Refugee Convention and has not committed
United States is one of the main recipients of UNHCR
crimes against humanity or serious non-political crimes). If
referrals and the world’s top resettlement country. In 2016,
UNHCR discovers something along these lines, it will
worldwide UNHCR submitted 163,206 individuals for
examine further, which could result in withdrawing the
resettlement, of which 108,197 referrals were made to the
individual from the resettlement pool or even denying the
United States. In 2017, UNHCR submitted 75,188
person refugee status, depending upon the situation. As
individuals for resettlement across 35 countries, including
there are limited resettlement places, if there is a problem in
the United States with 26,782 referrals. The U.S. worldwide
a case, it is likely to be set aside unless the person is in
refugee ceiling has varied and in recent years is as follows:
imminent peril. In some countries, up to 50% of those
70,000 (FY2015); 85,000 (FY2016); 110,000 (FY2017),
initially identified for resettlement may be screened out.
45,000 (FY2018) and 30,000 (FY2019).
How are refugees identified for resettlement?
UNHCR collects biometric data (which can include iris
scans, digital photos, or fingerprinting) on registered
UNHCR is usually involved in the process of identifying
refugees. Biometric data provide important security and
those refugees who may be eligible for resettlement
protection and continual identification, making it possible
referral. Different mechanisms may be used, including the
to confirm that the person who registered is the same person
registration process, looking at profiles in the population;
referred for resettlement. Biometric data also ensure greater
referral by UNHCR protection or community service staff;
protection and assistance for refugees by minimizing fraud
a “Best Interest Determination,” which is required for all
and linking information across multiple locations.
unaccompanied minors; referral by a non-governmental
Individual documentation and biometrics are checked
organization (NGO) or implementing partner; and group
annually. UNHCR does not perform security checks; it has
identification. Some countries take referrals directly from
no access to terrorist databases and therefore does not check
NGOs. Countries may also use other direct referrals
against them. Resettlement countries have extensive
through their embassies, private sponsorships, and other
security measures and typically check against their own
programs. UNHCR stresses the need for coordination
databases and intelligence information once a case has been
among those organizations making referrals to avoid fraud
submitted for resettlement.
and multiple claims. The length of time required to identify
a case for resettlement varies by context. A case might be
What are the other forms of admission?
identified as in need of resettlement the day the person
More limited forms of admission other than resettlement
registers with UNHCR as a refugee. It could also be that
may include humanitarian admission programs, individual
after many years in a camp, an individual or group may be
sponsorship, medical evacuation, or admission of relatives
resettled.
beyond existing family reunification programs. Countries
What factors determine where a refugee will be
may also make commitments to expand their capacity to
referred for resettlement?
receive refugees under labor mobility and private investor
schemes, student scholarships, or other programs.
UNHCR considers several factors when deciding where to
submit a case. With high demand and few places, it tries to
Rhoda Margesson, Specialist in International
find the best match based on
Humanitarian Policy
ï‚· family or other significant connections;
ï‚· accessibility to resettlement country process;
IF10611
ï‚· resettlement country criteria;
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Global Refugee Resettlement: Selected Issues and Questions


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
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reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
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