Updated January 29, 2021
Global Refugee Resettlement: Selected Issues and Questions
Congress has demonstrated a continued interest in refugee
U.N. High Commissioner for Refugees
resettlement, although such opportunities are available to
Established by the U.N. General Assembly in 1950, UNHCR’s
only a small percentage of the global refugee population.
mandate is to provide legal protection, implement long-term
(For more information on the refugee admissions process to
solutions, and coordinate emergency humanitarian relief for
the United States, see CRS Report RL31269, Refugee
refugees and other displaced persons around the world.
Admissions and Resettlement Policy.) Due to the
UNHCR works with governments to seek permanent
Coronavirus Disease 2019 (COVID-19) travel bans, on
solutions to refugee situations and prefers voluntary
March 17, 2020, the International Organization for
repatriation, whereby refugees return to their home
Migration (IOM) and U.N. High Commissioner for
countries. If repatriation is impossible, then UNHCR seeks
Refugees (UNHCR) announced the suspension of global
either local integration or resettlement in a third country.
resettlement travel for refugees. On June 18, 2020, they
UNHCR depends almost entirely on voluntary contributions
announced the resumption of resettlement departures for
to fund its operations. The United States is UNHCR’s largest
refugees, although many travel restrictions remain in place.
donor, with U.S. funding provided primarily through the
Global Displacement Trends
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 2021 more than 235
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
(latest data available) more than 79.5 million people were
is considered a refugee under international, regional, or
forcibly displaced worldwide due to armed conflict,
national law. Countries have the primary responsibility for
widespread or indiscriminate violence, or human rights
determining the status of asylum-seekers, but UNHCR may
violations. Those displaced included 26 million refugees,
do so when countries are unable or unwilling. During mass
4.2 million asylum seekers, 45.7 million Internally
movements of refugees (usually due to conflicts or
Displaced Persons (IDPs) and 3.6 million Venezuelans
generalized violence as opposed to individual persecution),
displaced abroad. The United States is the largest donor of
individual asylum interviews cannot be conducted for
humanitarian assistance, consistently providing between
everyone who has crossed the border. In such cases, it is
one-quarter and one-third of total global humanitarian
generally evident why people have fled. As a result, with
contributions. From FY2016 to FY2020, the United States
the agreement of the host country, these groups are often
provided over $46 billion in global humanitarian assistance.
declared “prima facie” refugees.
Refugees and Asylum Seekers
Refugee Resettlement
Under the 1951 Convention Relating to the Status of
Resettlement is the transfer of refugees from a country
Refugees (Refugee Convention), a refugee is legally
where they have received temporary asylum to another
defined as a person fleeing his or her country because of
country that has agreed to admit them and ultimately grant
persecution or “owing to a well-founded fear of being
them permanent settlement with legal and physical
persecuted for reasons of race, religion, nationality,
protection, including access to civil, political, economic,
membership of a particular social group or political
social, and cultural rights similar to those enjoyed by
opinion, is outside of the country of his nationality and is
nationals. It generally leads to permanent resident status or
unable or, owing to such fear, is unwilling to avail himself
even citizenship in the resettlement country. There may be
of the protection of that country.” A cornerstone of the
many reasons for resettlement. In most cases, there is no
Refugee Convention is the principle of “non-refoulement,”
prospect for repatriation or local integration, and the
which means that a refugee should not be returned to a
situation in the host country may create particular
country where he or she faces serious threats to his or her
protection concerns for the individual. The refugee
life or freedom. An asylum-seeker is someone who has
resettlement process typically involves UNHCR and the
applied for refugee status but whose claim has not yet been
government of the resettlement country:
definitively evaluated.
1. UNHCR registration (often includes taking biometrics);
Once an individual is considered a refugee, that individual
2. UNHCR Refugee Status Determination (RSD);
automatically has certain legal rights, and states that are
3. UNHCR identification of a need for resettlement;
States Parties to the Refugee Convention and/or its 1967
4. resettlement country RSD and admissibility procedures;
Protocol are obligated to provide certain resources and
5. clearances by resettlement country; and
protection. UNHCR’s mandate is to lead and coordinate
6. travel (reception and integration in resettlement country).
international action for the protection of refugees and the
resolution of refugee problems worldwide.
Of the millions of refugees of concern to UNHCR globally,
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
resettlement country criteria;
cases is significantly smaller than the refugee population,
timing (normal, urgent, emergency);
but experts view it as an important tool of refugee
availability of quota or places;
protection and response. Resettlement can also be a way for
refugee input (but the refugee cannot choose); and/or
governments to demonstrate they are carrying some of the
prior agreement with a resettlement country.
burden of the impact of refugees, even symbolically, with
host countries and among other donor countries.
Countries vary in their approach and priorities with regard
What makes a refugee eligible for resettlement?
to resettlement, depending on the individual case and
circumstance. The type of submission is determined in part
Refugees identified for resettlement usually fall into a
by whether the case involves an individual or a group. With
category of need or vulnerability, such as (1) legal or
many individual cases, UNHCR will have a history of
physical protection; (2) lack of foreseeable alternative
refugee status (bio data and other information). If the
durable solutions; (3) survivors of violence or torture; (4)
person arrived as a “prima facie” refugee, registration
women and girls at risk; (5) medical needs; (6) family
would have taken place in a camp or at a point of arrival,
reunion; and (7) children and adolescents.
but more information and review would be required for
How many countries resettle refugees?
resettlement purposes, often making it more difficult to
An average of 30 countries, including the United States,
meet the criteria for resettlement.
annually take part in UNHCR’s worldwide resettlement
How is security addressed during resettlement?
program. The United States is one of the main recipients of
UNHCR screens for exclusion factors when it conducts
UNHCR referrals and the world’s top resettlement country.
RSD interviews (which it does on each refugee referred to
In 2016, UNHCR submitted 163,206 individuals for
the United States). Based on whatever information it has,
resettlement, with 108,197 referrals to the United States. In
UNHCR conducts its own assessments (e.g., to make sure
2017, UNHCR submitted 75,188 individuals for
that the person is eligible for refugee status under the
resettlement across 35 countries, including 26,782 referrals
Refugee Convention and has not committed crimes against
to the United States. In 2018, UNHCR submitted 81,337
humanity or serious nonpolitical crimes). If UNHCR
individuals for resettlement across 29 countries, with
discovers something along these lines, it will examine
29,026 referrals to the United States. In 2019, UNHCR
further, which could result in withdrawing the individual
submitted 81,671 individuals across 29 countries, with
from the resettlement pool or even denying the person
24,810 referrals to the United States. In 2020, UNHCR
refugee status, depending upon the situation. As there are
submitted 39,522 individuals for resettlement, with 2,081
limited resettlement places, if there is a problem in a case, it
referrals to the United States. The U.S. worldwide refugee
is likely to be set aside unless the person is in imminent
admissions ceiling has varied in recent fiscal years: 70,000
peril. In some countries, up to 50% of those initially
(FY2015); 85,000 (FY2016); 110,000 (FY2017); 45,000
identified for resettlement may be screened out.
(FY2018); 30,000 (FY2019); 18,000 (FY2020); and 15,000
(FY2021).
UNHCR collects biometric data (which can include iris
How are refugees identified for resettlement?
scans, digital photos, or fingerprinting) on registered
refugees. Biometric data provide important security and
UNHCR is usually involved in the process of identifying
protection and continual identification, making it possible
those refugees who may be eligible for resettlement
to confirm that the person who registered is the same person
referral. Different mechanisms may be used, including the
referred for resettlement. Biometric data also ensure greater
registration process, looking at profiles in the population;
protection and assistance for refugees by minimizing fraud
referral by UNHCR protection or community service staff;
and linking information across multiple locations.
a “Best Interest Determination,” which is required for all
Individual documentation and biometrics are checked
unaccompanied minors; referral by a nongovernmental
annually. UNHCR does not perform security checks; it has
organization (NGO); and group identification. Some
no access to terrorist databases and therefore does not check
countries take referrals directly from NGOs. Countries may
against them. Resettlement countries have extensive
also use other direct referrals through their embassies,
security measures and typically check against their own
private sponsorships, and other programs. UNHCR stresses
databases and intelligence information once a case has been
the need for coordination among those organizations
submitted for resettlement.
making referrals to avoid fraud and multiple claims. The
length of time required to identify a case for resettlement
What are the other forms of admission?
varies. A case might be identified as in need of resettlement
More limited forms of admission other than resettlement
the day the person registers with UNHCR as a refugee. It
may include humanitarian admission programs, individual
could also be that after many years in a camp, an individual
sponsorship, medical evacuation, or admission of relatives
or group may be 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, Acting Section Research Manager
find the best match based on
IF10611
family or other significant connections;
accessibility to resettlement country process;
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Global Refugee Resettlement: Selected Issues and Questions
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