Updated March 27, 2020
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. (For more
which means that a refugee should not be returned to a
information on the refugee admissions process to the United
country where he or she faces serious threats to his or her
States, see CRS Report RL31269, Refugee Admissions and
life or freedom. An asylum-seeker is someone who has
Resettlement Policy.) On March 17, 2020, the International
applied for refugee status but whose claim has not yet been
Organization for Migration (IOM) and U.N. High
definitively evaluated.
Commissioner for Refugees (UNHCR) announced they
Once an individual is considered a refugee, that individual
were suspending global resettlement travel for refugees due
automatically has certain legal rights, and states that are
to the COVID-19 travel bans.
States Parties to the Refugee Convention and/or its 1967
Current Refugee Crisis
Protocol are obligated to provide certain resources and
The U.N. Office for the Coordination of Humanitarian
protection. UNHCR’s mandate is to lead and coordinate
Affairs (UNOCHA) anticipates that in 2020 more than 168
international action for the protection of refugees and the
million people worldwide will require humanitarian
resolution of refugee problems worldwide.
assistance and protection due to conflict and disaster.
Refugee Status Determination (RSD) is the legal or
UNHCR (see text box) reported that in 2018 more than
administrative process by which governments or UNHCR
70.8 million people were forcibly displaced worldwide due
determine whether a person seeking international protection
to armed conflict, widespread or indiscriminate violence, or
is considered a refugee under international, regional, or
human rights violations. Those displaced included 25.9
national law. Countries have the primary responsibility for
million refugees, 3.5 million asylum seekers, and 41.3
determining the status of asylum-seekers, but UNHCR may
million Internally Displaced Persons (IDPs). The United
do so when countries are unable or unwilling. During mass
States is the largest donor of humanitarian assistance,
movements of refugees (usually due to conflicts or
consistently providing between one-quarter and one-third of
generalized violence as opposed to individual persecution),
total global humanitarian contributions. From FY2015 to
individual asylum interviews cannot be conducted for
FY2019, the United States provided over $43 billion in
everyone who has crossed the border. In such cases, it is
global humanitarian assistance.
generally evident why people have fled. As a result, with
the agreement of the host country, these groups are often
U.N. High Commissioner for Refugees
declared “prima facie” refugees.
Established by the U.N. General Assembly in 1950, UNHCR’s
mandate is to provide legal protection, implement long-term
Refugee resettlement
solutions, and coordinate emergency humanitarian relief for
Resettlement is the transfer of refugees from a country
refugees and other displaced persons around the world.
where they have received temporary asylum to another
UNHCR works with governments to seek permanent
country that has agreed to admit them and ultimately grant
solutions to refugee situations and prefers voluntary
them permanent settlement with legal and physical
repatriation, whereby refugees return to their home
protection, including access to civil, political, economic,
countries. If repatriation is impossible, then UNHCR seeks
social, and cultural rights similar to those enjoyed by
either local integration or resettlement in a third country.
nationals. It generally leads to permanent resident status or
UNHCR depends almost entirely on voluntary contributions
even citizenship in the resettlement country. There may be
to fund its operations. The United States is UNHCR’s largest
many reasons for resettlement. In most cases, there is no
donor, with U.S. funding provided primarily through the
prospect for repatriation or local integration, and the
Migration and Refugee Assistance (MRA) account in annual
situation in the host country may create particular
State/Foreign operations appropriations.
protection concerns for the individual. The refugee
resettlement process typically involves UNHCR and the
Key Concepts and Definitions
government of the resettlement country:
Defining refugees and asylum seekers in an
1. UNHCR registration (often includes taking biometrics);
international context
2. UNHCR Refugee Status Determination (RSD);
Under the 1951 Convention Relating to the Status of
3. UNHCR identification of a need for resettlement;
Refugees (Refugee Convention), a refugee is legally
4. resettlement country RSD and admissibility procedures;
defined as a person fleeing his or her country because of
5. clearances by resettlement country; and
persecution or “owing to a well-founded fear of being
6. travel (reception and integration in resettlement country).
persecuted for reasons of race, religion, nationality,
Of the millions of refugees of concern to UNHCR globally,
membership of a particular social group or political
less than 1% is submitted for resettlement. The number of
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Global Refugee Resettlement: Selected Issues and Questions
global resettlement places available for UNHCR-submitted
availability of quota or places;
cases is significantly smaller than the refugee population,
refugee input (but the refugee cannot choose); and/or
but experts view it as an important tool of refugee
prior agreement with a resettlement country.
protection and response. Resettlement can also be a way for
governments to demonstrate they are carrying some of the
Countries vary in their approach and priorities with regard
burden of the impact of refugees, even symbolically, with
to resettlement, depending on the individual case and
host countries and among other donor countries.
circumstance. The type of submission is determined in part
What makes a refugee eligible for resettlement?
by whether the case involves an individual or a group. With
many individual cases, UNHCR will have a history of
Refugees identified for resettlement usually fall into a
refugee status (bio data and other information). If the
category of need or vulnerability, such as (1) legal or
person arrived as a “prima facie” refugee, registration
physical protection; (2) lack of foreseeable alternative
would have taken place in a camp or at a point of arrival,
durable solutions; (3) survivors of violence or torture; (4)
but more information and review would be required for
women and girls at risk; (5) medical needs; (6) family
resettlement purposes, often making it more difficult to
reunion; and (7) children and adolescents.
meet the criteria for resettlement.
How many countries resettle refugees?
How is security addressed during resettlement?
An average of 36 countries, including the United States,
UNHCR screens for exclusion factors when it conducts
annually take part in UNHCR’s worldwide resettlement
RSD interviews (which it does on each refugee referred to
program. The United States is one of the main recipients of
the United States). This means that, based on whatever
UNHCR referrals and the world’s top resettlement country.
information it has, UNHCR conducts its own assessments
In 2016, UNHCR submitted 163,206 individuals for
(e.g., to make sure that the person is eligible for refugee
resettlement, with 108,197 referrals to the United States. In
status under the Refugee Convention and has not committed
2017, UNHCR submitted 75,188 individuals for
crimes against humanity or serious non-political crimes). If
resettlement across 35 countries, including 26,782 referrals
UNHCR discovers something along these lines, it will
to the United States. In 2018, UNHCR submitted 81,337
examine further, which could result in withdrawing the
individuals for resettlement across 29 countries, with
individual from the resettlement pool or even denying the
29,026 referrals to the United States. In 2019, UNHCR
person refugee status, depending upon the situation. As
submitted 81,666 individuals across 29 countries, with
there are limited resettlement places, if there is a problem in
24,810 referrals to the United States. The U.S. worldwide
a case, it is likely to be set aside unless the person is in
refugee admissions ceiling has varied in recent fiscal years:
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); 30,000 (FY2019); and 18,000 (FY2020).
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. A case might be identified as
What are the other forms of admission?
in need of resettlement the day the person registers with
More limited forms of admission other than resettlement
UNHCR as a refugee. It could also be that after many years
may include humanitarian admission programs, individual
in a camp, an individual or group may be resettled.
sponsorship, medical evacuation, or admission of relatives
What factors determine where a refugee will be
beyond existing family reunification programs. Countries
referred for resettlement?
may also make commitments to expand their capacity to
receive refugees under labor mobility and private investor
UNHCR considers several factors when deciding where to
schemes, student scholarships, or other programs.
submit a case. With high demand and few places, it tries to
find the best match based on
Rhoda Margesson, Specialist in International
family or other significant connections;
Humanitarian Policy
accessibility to resettlement country process;
resettlement country criteria;
IF10611
timing (normal, urgent, emergency);
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Global Refugee Resettlement: Selected Issues and Questions
Disclaimer
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