Climbing over barbed wire fences, taking to sea in leaking boats or stowing away in airless containers, every year thousands of migrants and refugees risk their lives in a desperate attempt to find safety or a better life in Europe. Some cross by sea, from West Africa to the Spanish Canary Islands, from Morocco to southern Spain, from Libya to the islands of Malta, Sicily and Lampedusa and from Turkey to the islands of Greece. Many more enter by land, aiming at the countries of the EU via Turkey and the Balkans or from Ukraine and Belarus. 

Many of these migration movements are irregular: they take place without the required documentation, through unauthorized border crossing points or involve smugglers. States usually regard such movements as a threat to their sovereignty and security. 

However, people entering irregularly do so for a variety of reasons. In some cases, they are economic migrants trying to escape poverty and unemployment. In some cases, they are fleeing persecution, human rights violations or armed conflict. In many cases, irregular entry may be their only way to escape.

Refugees and migrants often travel alongside each other, using the same route and mode of transport. Yet, they have very different protection needs: migrants choose to move, while refugees have to move. 

Despite of recognizing that border controls are essential for combating international crime, including smuggling and trafficking, UNHCR wants to ensure that they do not lead to refugees being returned to countries where their life or liberty could be threatened. Therefore, the UN refugee agency works with governments to help them respond to the challenges of mixed migration in a coherent and practical way. 

In June 2006, UNHCR launched a 10-Point Plan of Action on Refugee Protection and Mixed Migration for the countries along the eastern and south-eastern borders of the European Union. The plan offers a framework for states to handle mixed migration movements in a so-called protection-sensitive way and ensure international protection to refugees and asylum seekers who travel in a mixed group of migrants and refugees. The 10-Point Plan sets out key areas where protection interventions are required, with a comprehensive regional approach, embracing countries of origin, transit and destination.

In addition, in May 2011 UNHCR launched a Protection Training Manual for European Border and Entry Officials. The manual is designed to facilitate the training of European Union border personnel and entry officers on the rights of refugees and asylum-seekers in the context of mixed migration movements. The manual is to be used by European border authorities and the EU border agency Frontex, as well as UNHCR staff and national partners, including non-governmental organizations.