Global Refugee Resettlement: Selected Issues and Questions
Updated January 27, 2022
Global Refugee Resettlement: Selected Issues and Questions
Congress has demonstrated a continued interest in refugee
but UNHCR may do so when countries are unable or
resettlement, although such opportunities are available to
unwilling. During mass movements of refugees (usually
only a tiny percentage of the global refugee population.
due to conflicts or generalized violence as opposed to
(For more information on the refugee admissions process to
individual persecution), individual asylum interviews
the United States, see CRS Report RL31269, Refugee
cannot be conducted for everyone who has crossed the
Admissions and Resettlement Policy.) Coronavirus Disease
border. In such cases, it is generally evident why people
2019 (COVID-19) travel bans have affected global
have fled. As a result, with the agreement of the host
resettlement travel at different points since March 2020.
country, these groups are often declared “prima facie”
Global Displacement Trends
refugees.
The U.N. Office for the Coordination of Humanitarian
U.N. High Commissioner for Refugees (UNHCR)
Affairs projects that in 2022 more than 274 million people
Established by the U.N. General Assembly in 1950, UNHCR’s
worldwide will require humanitarian assistance and
mandate is to provide legal protection, implement long-term
protection due to conflict and disaster. The U.N. High
solutions, and coordinate emergency humanitarian relief for
Commissioner for Refugees (UNHCR) reported that in
refugees and other displaced persons around the world.
mid-2021 (latest data available) more than 84 million
UNHCR works with governments to seek permanent
people were forcibly displaced worldwide due to armed
solutions to refugee situations and prefers voluntary
conflict, widespread or indiscriminate violence, or human
repatriation, whereby refugees return to their home
rights violations. Those displaced included 26.6 million
countries. If repatriation is impossible, then UNHCR seeks
refugees, 4.4 million asylum seekers, 48 million Internally
either local integration or resettlement in a third country.
Displaced Persons (IDPs) and 5.7 million Venezuelans
UNHCR depends almost entirely on voluntary contributions
displaced abroad. The United States is the single largest
to fund its operations. The United States is UNHCR’s largest
donor, consistently providing nearly one-third (more than
donor, with U.S. funding provided primarily through the
$11.46 billion in FY2021) of total humanitarian and
Migration and Refugee Assistance (MRA) account in annual
emergency food assistance through global accounts.
Department of State, Foreign Operations, and Related
Refugees and Asylum Seekers
Programs appropriations.
Under the 1951 Convention Relating to the Status of
Refugees (Refugee Convention), a refugee is legally
Refugee Resettlement
defined as a person fleeing his or her country because of
Resettlement is the transfer of refugees from a country
persecution or “owing to a well-founded fear of being
where they have received temporary asylum to another
persecuted for reasons of race, religion, nationality,
country that has agreed to admit them and ultimately grant
membership of a particular social group or political
them permanent settlement with legal and physical
opinion, is outside of the country of his nationality and is
protection, including access to civil, political, economic,
unable or, owing to such fear, is unwilling to avail himself
social, and cultural rights similar to those enjoyed by
of the protection of that country.” A cornerstone of the
nationals. It generally leads to permanent resident status or
Refugee Convention is the principle of “non-refoulement,”
even citizenship in the resettlement country. There may be
which means that a refugee should not be returned to a
many reasons for resettlement. In most cases, there is no
country where he or she faces serious threats to his or her
prospect for repatriation or local integration, and the
life or freedom. An asylum-seeker is someone who has
situation in the host country may create particular
applied for refugee status but whose claim has not yet been
protection concerns for the individual. The refugee
definitively evaluated.
resettlement process typically involves UNHCR and the
Once an individual is considered a refugee, that individual
government of the resettlement country:
automatically has certain legal rights, and states that are
1. UNHCR registration (often includes taking biometrics);
States Parties to the Refugee Convention and/or its 1967
2. UNHCR Refugee Status Determination (RSD);
Protocol are obligated to provide certain resources and
3. UNHCR identification of a need for resettlement;
protection. UNHCR’s mandate is to lead and coordinate
4. resettlement country RSD and admissibility procedures;
international action for the protection of refugees and the
5. clearances by resettlement country; and
resolution of refugee problems worldwide (see text box).
6. travel (reception and integration in resettlement country).
Refugee Status Determination (RSD) is the legal or
Of the millions of refugees of concern to UNHCR globally,
administrative process by which governments or UNHCR
less than 1% are submitted for resettlement. The number of
determines whether a person seeking international
global resettlement places available for UNHCR-submitted
protection is considered a refugee under international,
cases is significantly smaller than the refugee population,
regional, or national law. Countries have the primary
but experts view it as an important tool of refugee
responsibility for determining the status of asylum-seekers,
protection and response. Resettlement can also be a way for
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Global Refugee Resettlement: Selected Issues and Questions
governments to demonstrate they are carrying some of the
resettlement country criteria;
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 (biometric data and other information). If the
person arrived as a “prima facie” refugee, registration
An average of 27 countries, including the United States,
would have taken place in a camp or at a point of arrival,
annually take part in UNHCR’s worldwide resettlement
but more information and review would be required for
program. The United States is one of the main recipients of
resettlement purposes, often making it more difficult to
UNHCR referrals.
meet the criteria for resettlement.
UNHCR Global Resettlement Figures,
How is security addressed during resettlement?
2016-2021, by Calendar Year
UNHCR screens for exclusion factors when it conducts
Number of
UNHCR Total
UNHCR
RSD interviews (which it does on each refugee referred to
Resettlement
Resettlement
Submissions
the United States). Based on whatever information it has,
Year
Countries
Submissions
to the U.S.
UNHCR conducts its own assessments (e.g., to ensure that
2016
37
163,206
108,197
the person is eligible for refugee status under the Refugee
2017
35
75,188
26,782
Convention and has not committed crimes against humanity
2018
29
81,337
29,026
or serious nonpolitical crimes). If UNHCR discovers
2019
29
81,671
24,810
something along these lines, it will examine further, which
could result in withdrawing the individual from the
2020
20
39,534
2,081
resettlement pool or even denying the person refugee status,
2021
17
63,190
32,851
depending upon the situation. Because resettlement places
Source: UNHCR Global Resettlement Fact Sheets, 2016-2021, and
are scarce, problematic cases are likely to be set aside
www.unhcr.org/en-us/resettlement-data.html.
unless the person is in imminent peril. In some countries, up
to 50% of those initially identified for resettlement may be
The U.S. worldwide refugee admissions ceiling has varied
screened out.
in recent fiscal years: 85,000 (FY2016); 110,000 (FY2017);
45,000 (FY2018); 30,000 (FY2019); 18,000 (FY2020);
UNHCR collects biometric data (which can include iris
15,000 (FY2021); 62,500 (2021); and 125,000 (FY2022).
scans, digital photos, and fingerprinting) on registered
How are refugees identified for resettlement?
refugees. Biometric data provide important security and
protection and continual identification, making it possible
UNHCR is usually involved in the process of identifying
to confirm that the person who registered is the same person
those refugees who may be eligible for resettlement
referred for resettlement. Biometric data also ensure greater
referral. Different mechanisms may be used, including the
protection and assistance for refugees by minimizing fraud
registration process; looking at profiles in the population;
and linking information across multiple locations.
referral by UNHCR protection or community service staff;
Individual documentation and biometrics are checked
a “Best Interest Determination,” which is required for all
annually. UNHCR does not perform security checks; it has
unaccompanied minors; referral by a nongovernmental
no access to terrorist databases and therefore does not check
organization (NGO); and group identification. Some
against them. Resettlement countries have extensive
countries take referrals directly from NGOs. Countries may
security measures and typically check against their own
also use other direct referrals through their embassies,
databases and intelligence information once a case has been
private sponsorships, and other programs. UNHCR stresses
submitted for resettlement.
the need for coordination among those organizations
making referrals to avoid fraud and multiple claims. The
What are the other forms of admission?
length of time required to identify a case for resettlement
More limited forms of admission other than resettlement
varies. A case might be identified as in need of resettlement
may include humanitarian admission programs, individual
the day the person registers with UNHCR as a refugee. It
sponsorship, medical evacuation, and admission of relatives
could also be that after many years in a camp, an individual
beyond existing family reunification programs. Countries
or group may be resettled.
may also make commitments to expand their capacity to
What factors determine where a refugee will be
receive refugees under labor mobility and private investor
referred for resettlement?
schemes, student scholarships, and other programs.
UNHCR considers several factors when deciding where to
Rhoda Margesson, Acting Section Research Manager
submit a case. With high demand and few places, it tries to
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
Disclaimer
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