The process drags on for years, and during the interim, applicants are unable to find a home, job or future. Advocates say the system needs streamlining.
At several points in Syria's war, powerful images captured international attention and were described as possible turning points. But each time, the moment passed and the killing carried on.
Abdullah Kurdi, whose 3-year-old son's lifeless body was photographed facedown on a Turkish beach, says: "I hope the world will learn something from it."
Hungarian authorities stopped the migrants, including refugees from Syria and Iraq, from boarding trains bound for Western Europe. The station has become the latest flashpoint in the migrant crisis.
Prime Minister Viktor Orban has adopted staunchly anti-migrant positions to try and win back supporters from the far right, which is making significant gains.
Europe has seen an unprecedented number of migrants and asylum seekers reach its borders. EU ministers called the meeting, in part, to try to decide which migrants are treated as refugees.