Updated September 1, 2020
Global Refugee Resettlement: Selected Issues and Questions
As the number of refugees worldwide reached
international action for the protection of refugees and the
unprecedented levels in recent years, Congress has
resolution of refugee problems worldwide.
demonstrated a continued interest in refugee resettlement,
although such opportunities are available to only a small
U.N. High Commissioner for Refugees
percentage of the global refugee population. (For more
Established by the U.N. General Assembly in 1950, UNHCR’s
information on the refugee admissions process to the United
mandate is to provide legal protection, implement long-term
States, see CRS Report RL31269, Refugee Admissions and
solutions, and coordinate emergency humanitarian relief for
Resettlement Policy.) On March 17, 2020, the International
refugees and other displaced persons around the world.
Organization for Migration (IOM) and U.N. High
UNHCR works with governments to seek permanent
Commissioner for Refugees (UNHCR) announced the
solutions to refugee situations and prefers voluntary
suspension of global resettlement travel for refugees due to
repatriation, whereby refugees return to their home
the Coronavirus Disease 2019 (COVID-19) travel bans. On
countries. If repatriation is impossible, then UNHCR seeks
June 18, 2020, they announced the resumption of
either local integration or resettlement in a third country.
resettlement departures for refugees, although many travel
UNHCR depends almost entirely on voluntary contributions
restrictions remained in place.
to fund its operations. The United States is UNHCR’s largest
Global Displacement Trends
donor, with U.S. funding provided primarily through the
Migration and Refugee Assistance (MRA) account in annual
The U.N. Office for the Coordination of Humanitarian
State/Foreign operations appropriations.
Affairs (UNOCHA) anticipates that in 2020 more than 168
million people worldwide will require humanitarian
Refugee Status Determination (RSD) is the legal or
assistance and protection due to conflict and disaster.
administrative process by which governments or UNHCR
UNHCR (see text box) reported that at the end of 2019
determine whether a person seeking international protection
more than 79.5 million people were forcibly displaced
is considered a refugee under international, regional, or
worldwide due to armed conflict, widespread or
national law. Countries have the primary responsibility for
indiscriminate violence, or human rights violations. Those
determining the status of asylum-seekers, but UNHCR may
displaced included 26 million refugees, 4.2 million asylum
do so when countries are unable or unwilling. During mass
seekers, 45.7 million Internally Displaced Persons (IDPs)
movements of refugees (usually due to conflicts or
and 3.6 million Venezuelans displaced abroad. The United
generalized violence as opposed to individual persecution),
States is the largest donor of humanitarian assistance,
individual asylum interviews cannot be conducted for
consistently providing between one-quarter and one-third of
everyone who has crossed the border. In such cases, it is
total global humanitarian contributions. From FY2015 to
generally evident why people have fled. As a result, with
FY2019, the United States provided over $43 billion in
the agreement of the host country, these groups are often
global humanitarian assistance.
declared “prima facie” refugees.
Refugees and Asylum Seekers
Under the 1951 Convention Relating to the Status of
Refugee Resettlement
Refugees (Refugee Convention), a refugee is legally
Resettlement is the transfer of refugees from a country
defined as a person fleeing his or her country because of
where they have received temporary asylum to another
persecution or “owing to a well-founded fear of being
country that has agreed to admit them and ultimately grant
persecuted for reasons of race, religion, nationality,
them permanent settlement with legal and physical
membership of a particular social group or political
protection, including access to civil, political, economic,
opinion, is outside of the country of his nationality and is
social, and cultural rights similar to those enjoyed by
unable or, owing to such fear, is unwilling to avail himself
nationals. It generally leads to permanent resident status or
of the protection of that country.” A cornerstone of the
even citizenship in the resettlement country. There may be
Refugee Convention is the principle of “non-refoulement,”
many reasons for resettlement. In most cases, there is no
which means that a refugee should not be returned to a
prospect for repatriation or local integration, and the
country where he or she faces serious threats to his or her
situation in the host country may create particular
life or freedom. An asylum-seeker is someone who has
protection concerns for the individual. The refugee
applied for refugee status but whose claim has not yet been
resettlement process typically involves UNHCR and the
definitively evaluated.
government of the resettlement country:
Once an individual is considered a refugee, that individual
1. UNHCR registration (often includes taking biometrics);
automatically has certain legal rights, and states that are
2. UNHCR Refugee Status Determination (RSD);
States Parties to the Refugee Convention and/or its 1967
3. UNHCR identification of a need for resettlement;
Protocol are obligated to provide certain resources and
4. resettlement country RSD and admissibility procedures;
protection. UNHCR’s mandate is to lead and coordinate
5. clearances by resettlement country; and
6. travel (reception and integration in resettlement country).
https://crsreports.congress.gov
Global Refugee Resettlement: Selected Issues and Questions
Of the millions of refugees of concern to UNHCR globally,
resettlement country criteria;
less than 1% is submitted for resettlement. The number of
timing (normal, urgent, emergency);
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 30 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 nonpolitical 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 nongovernmental
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, Acting Section Research Manager
family or other significant connections;
IF10611
accessibility to resettlement country process;
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Global Refugee Resettlement: Selected Issues and Questions
Disclaimer
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