Updated May 7, 2021
Global Refugee Resettlement: Selected Issues and Questions
Congress has demonstrated a continued interest in refugee
determining the status of asylum-seekers, but UNHCR may
resettlement, although such opportunities are available to
do so when countries are unable or unwilling. During mass
only a small percentage of the global refugee population.
movements of refugees (usually due to conflicts or
(For more information on the refugee admissions process to
generalized violence as opposed to individual persecution),
the United States, see CRS Report RL31269, Refugee
individual asylum interviews cannot be conducted for
Admissions and Resettlement Policy.) Coronavirus Disease
everyone who has crossed the border. In such cases, it is
2019 (COVID-19) travel bans suspended global
generally evident why people have fled. As a result, with
resettlement travel for refugees from March 17 to June 18,
the agreement of the host country, these groups are often
2020, although some travel restrictions remain in place.
declared “prima facie” refugees
Global Displacement Trends
U.N. High Commissioner for Refugees (UNHCR)
The U.N. Office for the Coordination of Humanitarian
Established by the U.N. General Assembly in 1950, UNHCR’s
Affairs anticipates that in 2021 more than 235 million
mandate is to provide legal protection, implement long-term
people worldwide will require humanitarian assistance and
solutions, and coordinate emergency humanitarian relief for
protection due to conflict and disaster. The U.N. High
refugees and other displaced persons around the world.
Commissioner for Refugees (UNHCR) reported that at the
UNHCR works with governments to seek permanent
end of 2019 (latest data available) more than 79.5 million
solutions to refugee situations and prefers voluntary
people were forcibly displaced worldwide due to armed
repatriation, whereby refugees return to their home
conflict, widespread or indiscriminate violence, or human
countries. If repatriation is impossible, then UNHCR seeks
rights violations. Those displaced included 26 million
either local integration or resettlement in a third country.
refugees, 4.2 million asylum seekers, 45.7 million
UNHCR depends almost entirely on voluntary contributions
Internally Displaced Persons (IDPs) and 3.6 million
to fund its operations. The United States is UNHCR’s largest
Venezuelans displaced abroad. The United States is the
donor, with U.S. funding provided primarily through the
single largest donor, consistently providing nearly one-third
Migration and Refugee Assistance (MRA) account in annual
(more than $9.5 billion in FY2020) of total humanitarian
State/Foreign operations appropriations.
and emergency food assistance through global accounts.
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 (see text box).
Of the millions of refugees of concern to UNHCR globally,
less than 1% is submitted for resettlement. The number of
Refugee Status Determination (RSD) is the legal or
global resettlement places available for UNHCR-submitted
administrative process by which governments or UNHCR
cases is significantly smaller than the refugee population,
determine whether a person seeking international protection
but experts view it as an important tool of refugee
is considered a refugee under international, regional, or
protection and response. Resettlement can also be a way for
national law. Countries have the primary responsibility for
governments to demonstrate they are carrying some of the
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Global Refugee Resettlement: Selected Issues and Questions
burden of the impact of refugees, even symbolically, with
timing (normal, urgent, emergency);
host countries and among other donor countries.
availability of quota or places;
What makes a refugee eligible for resettlement?
refugee input (but the refugee cannot choose); and/or
prior agreement with a resettlement country.
Refugees identified for resettlement usually fall into a
category of need or vulnerability, such as (1) legal or
Countries vary in their approach and priorities with regard
physical protection; (2) lack of foreseeable alternative
to resettlement, depending on the individual case and
durable solutions; (3) survivors of violence or torture; (4)
circumstance. The type of submission is determined in part
women and girls at risk; (5) medical needs; (6) family
by whether the case involves an individual or a group. With
reunion; and (7) children and adolescents.
many individual cases, UNHCR will have a history of
How many countries resettle refugees?
refugee status (bio data and other information). If the
An average of 30 countries, including the United States,
person arrived as a “prima facie” refugee, registration
annually take part in UNHCR’s worldwide resettlement
would have taken place in a camp or at a point of arrival,
program. The United States is one of the main recipients of
but more information and review would be required for
UNHCR referrals and the world’s top resettlement country.
resettlement purposes, often making it more difficult to
In 2016, UNHCR submitted 163,206 individuals for
meet the criteria for resettlement.
resettlement, with 108,197 referrals to the United States. In
How is security addressed during resettlement?
2017, UNHCR submitted 75,188 individuals for
UNHCR screens for exclusion factors when it conducts
resettlement across 35 countries, including 26,782 referrals
RSD interviews (which it does on each refugee referred to
to the United States. In 2018, UNHCR submitted 81,337
the United States). Based on whatever information it has,
individuals for resettlement across 29 countries, with
UNHCR conducts its own assessments (e.g., to make sure
29,026 referrals to the United States. In 2019, UNHCR
that the person is eligible for refugee status under the
submitted 81,671 individuals across 29 countries, with
Refugee Convention and has not committed crimes against
24,810 referrals to the United States. In 2020, UNHCR
humanity or serious nonpolitical crimes). If UNHCR
submitted 39,522 individuals for resettlement, with 2,081
discovers something along these lines, it will examine
referrals to the United States. The U.S. worldwide refugee
further, which could result in withdrawing the individual
admissions ceiling has varied in recent fiscal years: 70,000
from the resettlement pool or even denying the person
(FY2015); 85,000 (FY2016); 110,000 (FY2017); 45,000
refugee status, depending upon the situation. As there are
(FY2018); 30,000 (FY2019); 18,000 (FY2020); and 15,000
limited resettlement places, if there is a problem in a case, it
(FY2021). On May 3, 2021, the Biden Administration
is likely to be set aside unless the person is in imminent
raised the refugee admissions ceiling to 62,500 for the
peril. In some countries, up to 50% of those initially
remainder of FY2021.
identified for resettlement may be screened out.
How are refugees identified for resettlement?
UNHCR collects biometric data (which can include iris
UNHCR is usually involved in the process of identifying
scans, digital photos, or fingerprinting) on registered
those refugees who may be eligible for resettlement
refugees. Biometric data provide important security and
referral. Different mechanisms may be used, including the
protection and continual identification, making it possible
registration process, looking at profiles in the population;
to confirm that the person who registered is the same person
referral by UNHCR protection or community service staff;
referred for resettlement. Biometric data also ensure greater
a “Best Interest Determination,” which is required for all
protection and assistance for refugees by minimizing fraud
unaccompanied minors; referral by a nongovernmental
and linking information across multiple locations.
organization (NGO); and group identification. Some
Individual documentation and biometrics are checked
countries take referrals directly from NGOs. Countries may
annually. UNHCR does not perform security checks; it has
also use other direct referrals through their embassies,
no access to terrorist databases and therefore does not check
private sponsorships, and other programs. UNHCR stresses
against them. Resettlement countries have extensive
the need for coordination among those organizations
security measures and typically check against their own
making referrals to avoid fraud and multiple claims. The
databases and intelligence information once a case has been
length of time required to identify a case for resettlement
submitted for resettlement.
varies. A case might be identified as in need of resettlement
the day the person registers with UNHCR as a refugee. It
What are the other forms of admission?
could also be that after many years in a camp, an individual
More limited forms of admission other than resettlement
or group may be resettled.
may include humanitarian admission programs, individual
What factors determine where a refugee will be
sponsorship, medical evacuation, or admission of relatives
referred for resettlement?
beyond existing family reunification programs. Countries
may also make commitments to expand their capacity to
UNHCR considers several factors when deciding where to
receive refugees under labor mobility and private investor
submit a case. With high demand and few places, it tries to
schemes, student scholarships, or other programs.
find the best match based on
family or other significant connections;
Rhoda Margesson, Acting Section Research Manager
accessibility to resettlement country process;
IF10611
resettlement country criteria;
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Global Refugee Resettlement: Selected Issues and Questions
Disclaimer
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congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
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