Center for Refugee Policy
The U.S. Refugee
Admissions Program Explainer | July 2023
Introduction
The United States has the largest refugee resettlement USRAP was established after Congress passed (with
program in the world and has resettled over 3 million broad bipartisan support) the Refugee Act of 1980, an
refugees since 1975.1 The U.S. Refugee Admissions amendment to the INA that created a comprehensive
Program (USRAP) resettles and assists refugees in policy and process for the United States to admit
host communities nationwide through public-private refugees.7 The Act:
partnerships between the U.S. government and 10 • Removed geographic and ideological limits on the
resettlement agencies. HIAS is one of these agencies definition of a refugee and formally adopted the UN
and the oldest resettlement organization in the world. definition (see next section);
Below is an explanation of how USRAP admits, resettles,
and integrates refugees in the United States, and the • Provided a legal process and requirements to apply
role of refugee resettlement agencies like HIAS in for asylum in the United States;
this program. • Allows the president to set an annual number of
refugee admissions and allocations for nationals of
USRAP’s history certain countries; and
In 1950, the United Nations created the UN High • Established the Office of Refugee Resettlement (ORR)
Commissioner for Refugees, also known as the UN that provides resources to newly arriving refugees
Refugee Agency (UNHCR), to help and protect millions and asylum seekers to help them integrate into their
of refugees that were displaced after World War II.2 communities. 8
In 1951, the Convention Relating to the Status of
Refugees3 was enacted, which set forth basic principles Who is a refugee?
and defined legal protections for refugees. Although The INA and UNHCR define a refugee as a person who
the United States did not sign the 1951 Convention, it is outside of their country of origin (or under certain
later signed the 1967 Protocol Relating to the Status circumstances within it)9 and is unable or unwilling to
of Refugees4 that amended and broadened the scope return based on persecution they experienced or a well-
of the Convention.5 In 1952, the U.S. Congress passed founded fear of persecution on account of race, religion,
the Immigration and Nationality Act (INA),6 which nationality, membership in a particular social group,
reorganized and placed immigration and nationality or political opinion.10 Asylum seekers may also fall
laws under the same statute for the first time, but under this definition, but the main difference between
lacked refugee-specific provisions. The INA was later an asylum seeker and a refugee is where they ask
amended in the 1960s and 70s to allow refugees who for protection and how they enter the United States.
were granted temporary immigration status in the Refugees are referred to USRAP for resettlement in the
United States to adjust to permanent resident status. United States and their cases are initiated overseas.
Asylum is available to people who meet the above
definition and seek this type of protection within the
United States or at a port of entry.
3 million 108 million 125,000
refugees were resettled in the United people were forcibly displaced worldwide President Biden has committed to admit
States since 1975 under USRAP, which by mid-2022, 35.3 million of whom are 125,000 refugees to the United States in
is the largest refugee resettlement considered refugees. FY2024, a number not reached by the
program in the world. United States in three decades.
, Presidential determinations
and processing priorities for
refugee admissions
Every year, the president consults with Congress to important because refugee resettlement needs are
determine the number of refugees that can be resettled growing rapidly around the world. UNHCR estimated
in the United States during the next fiscal year.11 The that by mid-2022 there were over 108 million people
president also allocates a certain number of spots who were forcibly displaced worldwide, 35.3 million of
for refugees from five regions, including Africa, East whom are considered refugees.13
Asia, Latin America/Caribbean, Near East/South In 2022, UNHCR also projected that 1.47 million
Asia, and Europe/Central Asia, based on humanitarian of the most vulnerable and at-risk refugees needed
concerns that year.12 These determinations set goals resettlement worldwide.14 In FY 2022 and 2023 the
for refugee admissions for the government and refugee Biden administration set the refugee ceiling at 125,000,
resettlement agencies like HIAS to strive for, even which is the largest annual resettlement cap by any
though the refugee ceiling may not be met. They are country. This was a significant increase after the former
Processing priority categories
Priority 1 (P-1) covers individual refugees (usually the most vulnerable and at-risk) who were referred to
USRAP by UNHCR, a designated non-governmental organization (NGO), or U.S. embassy or government agency.
Priority 2 (P-2) covers groups of special humanitarian concern to the U.S. that are designated by the
Department of State. The two main types of P-2 groups are predefined groups and direct access groups:
Predefined Groups are identified based on similar Direct Access Groups are established by PRM and
persecution claims and apply to people in specific define specific criteria and application procedures.
locations. This allows for more efficient processing Individuals who meet these specifications can apply
and eliminates the labor-intensive process of for P-2 status inside or outside of their country of
individual referrals. For example, in August 2021, origin. Some examples of this include:
the DOS Bureau of Population, Refugees, and • The Lautenberg Amendment17 program for
Migration (PRM) announced a P-2 designation citizens of former Soviet Union countries and Iran
for certain Afghans who may be at risk due to their who are members of certain religious minority
affiliation with the United States, but do not meet groups with close family in the U.S. This program
the employment-related criteria to be eligible for expires at the end of the fiscal year and must be
the Afghan special immigrant visa (SIV) program. reauthorized by Congress annually.
• The Central American Minors (CAM) program
allows parents and legal guardians in the U.S.
to request that their child in a Northern Triangle
country be admitted to the U.S. as a refugee.
Priority 3 (P-3) is a pathway that aims to reunite refugees with their immediate family members who were
recently resettled in the U.S. These family members can petition for their relatives to join them in the U.S.
and be admitted as refugees.
Priority 4 (P-4) is a new category for FY 2023 that covers privately sponsored refugees who can come to
the U.S. under a new program called Welcome Corps that was launched in January 2023. This program
will allow private sponsors, including U.S. citizens, lawful permanent residents, and organizations, to
sponsor refugees and take on tasks to resettle them in the U.S., such as securing housing, education, and
employment.18 Private sponsors will also be able to identify refugees and refer them to USRAP.
2
The U.S. Refugee
Admissions Program Explainer | July 2023
Introduction
The United States has the largest refugee resettlement USRAP was established after Congress passed (with
program in the world and has resettled over 3 million broad bipartisan support) the Refugee Act of 1980, an
refugees since 1975.1 The U.S. Refugee Admissions amendment to the INA that created a comprehensive
Program (USRAP) resettles and assists refugees in policy and process for the United States to admit
host communities nationwide through public-private refugees.7 The Act:
partnerships between the U.S. government and 10 • Removed geographic and ideological limits on the
resettlement agencies. HIAS is one of these agencies definition of a refugee and formally adopted the UN
and the oldest resettlement organization in the world. definition (see next section);
Below is an explanation of how USRAP admits, resettles,
and integrates refugees in the United States, and the • Provided a legal process and requirements to apply
role of refugee resettlement agencies like HIAS in for asylum in the United States;
this program. • Allows the president to set an annual number of
refugee admissions and allocations for nationals of
USRAP’s history certain countries; and
In 1950, the United Nations created the UN High • Established the Office of Refugee Resettlement (ORR)
Commissioner for Refugees, also known as the UN that provides resources to newly arriving refugees
Refugee Agency (UNHCR), to help and protect millions and asylum seekers to help them integrate into their
of refugees that were displaced after World War II.2 communities. 8
In 1951, the Convention Relating to the Status of
Refugees3 was enacted, which set forth basic principles Who is a refugee?
and defined legal protections for refugees. Although The INA and UNHCR define a refugee as a person who
the United States did not sign the 1951 Convention, it is outside of their country of origin (or under certain
later signed the 1967 Protocol Relating to the Status circumstances within it)9 and is unable or unwilling to
of Refugees4 that amended and broadened the scope return based on persecution they experienced or a well-
of the Convention.5 In 1952, the U.S. Congress passed founded fear of persecution on account of race, religion,
the Immigration and Nationality Act (INA),6 which nationality, membership in a particular social group,
reorganized and placed immigration and nationality or political opinion.10 Asylum seekers may also fall
laws under the same statute for the first time, but under this definition, but the main difference between
lacked refugee-specific provisions. The INA was later an asylum seeker and a refugee is where they ask
amended in the 1960s and 70s to allow refugees who for protection and how they enter the United States.
were granted temporary immigration status in the Refugees are referred to USRAP for resettlement in the
United States to adjust to permanent resident status. United States and their cases are initiated overseas.
Asylum is available to people who meet the above
definition and seek this type of protection within the
United States or at a port of entry.
3 million 108 million 125,000
refugees were resettled in the United people were forcibly displaced worldwide President Biden has committed to admit
States since 1975 under USRAP, which by mid-2022, 35.3 million of whom are 125,000 refugees to the United States in
is the largest refugee resettlement considered refugees. FY2024, a number not reached by the
program in the world. United States in three decades.
, Presidential determinations
and processing priorities for
refugee admissions
Every year, the president consults with Congress to important because refugee resettlement needs are
determine the number of refugees that can be resettled growing rapidly around the world. UNHCR estimated
in the United States during the next fiscal year.11 The that by mid-2022 there were over 108 million people
president also allocates a certain number of spots who were forcibly displaced worldwide, 35.3 million of
for refugees from five regions, including Africa, East whom are considered refugees.13
Asia, Latin America/Caribbean, Near East/South In 2022, UNHCR also projected that 1.47 million
Asia, and Europe/Central Asia, based on humanitarian of the most vulnerable and at-risk refugees needed
concerns that year.12 These determinations set goals resettlement worldwide.14 In FY 2022 and 2023 the
for refugee admissions for the government and refugee Biden administration set the refugee ceiling at 125,000,
resettlement agencies like HIAS to strive for, even which is the largest annual resettlement cap by any
though the refugee ceiling may not be met. They are country. This was a significant increase after the former
Processing priority categories
Priority 1 (P-1) covers individual refugees (usually the most vulnerable and at-risk) who were referred to
USRAP by UNHCR, a designated non-governmental organization (NGO), or U.S. embassy or government agency.
Priority 2 (P-2) covers groups of special humanitarian concern to the U.S. that are designated by the
Department of State. The two main types of P-2 groups are predefined groups and direct access groups:
Predefined Groups are identified based on similar Direct Access Groups are established by PRM and
persecution claims and apply to people in specific define specific criteria and application procedures.
locations. This allows for more efficient processing Individuals who meet these specifications can apply
and eliminates the labor-intensive process of for P-2 status inside or outside of their country of
individual referrals. For example, in August 2021, origin. Some examples of this include:
the DOS Bureau of Population, Refugees, and • The Lautenberg Amendment17 program for
Migration (PRM) announced a P-2 designation citizens of former Soviet Union countries and Iran
for certain Afghans who may be at risk due to their who are members of certain religious minority
affiliation with the United States, but do not meet groups with close family in the U.S. This program
the employment-related criteria to be eligible for expires at the end of the fiscal year and must be
the Afghan special immigrant visa (SIV) program. reauthorized by Congress annually.
• The Central American Minors (CAM) program
allows parents and legal guardians in the U.S.
to request that their child in a Northern Triangle
country be admitted to the U.S. as a refugee.
Priority 3 (P-3) is a pathway that aims to reunite refugees with their immediate family members who were
recently resettled in the U.S. These family members can petition for their relatives to join them in the U.S.
and be admitted as refugees.
Priority 4 (P-4) is a new category for FY 2023 that covers privately sponsored refugees who can come to
the U.S. under a new program called Welcome Corps that was launched in January 2023. This program
will allow private sponsors, including U.S. citizens, lawful permanent residents, and organizations, to
sponsor refugees and take on tasks to resettle them in the U.S., such as securing housing, education, and
employment.18 Private sponsors will also be able to identify refugees and refer them to USRAP.
2
