A/68/283 Migration Group agencies has been encouraged more than others, and the Global Forum has tended to seek assistance from IOM. Furthermore, he observes the importance of including a stronger focus on human rights and a human rights framework within the mandate of the Special Representative of the SecretaryGeneral. 50. The Global Forum on Migration and Development has tended to focus more on the economic development dimensions of migration, rather than on the rights dimension. While issues related to human rights, including the protection of migrants, are sometimes discussed, the human rights of migrants are unfortunately rarely the focus and have not always even been present in the discussions. Meetings of the Global Forum are attended largely by either ministry of interior officials or diplomats rather than by human rights or labour ministry officials. Norm-based discussions have too frequently been dismissed as divisive, allowing for the creation of a discussion space that can at times ignore the fact that States have voluntarily assumed human rights obligations. The Special Rapporteur insists on the fact that migrants should always be seen first and foremost as human beings with human rights, rather than agents for development through, inter alia, remittances. 51. The Global Forum on Migration and Development is an informal, non-binding, voluntary and government-led process 5 which provides a platform for informal dialogue between States. There is no proper record of what is being said and, therefore, no transparency. While the discussions of the Global Forum can contribute to more formal cooperation and coordination, the Special Rapporteur notes that, owing to its voluntary, informal and non-binding nature, it has so far not led to much substantive change. 52. One of the main objectives of the Global Forum is to exchange good practices and experiences,5 but, in the absence of a normative framework to guide the discussions, this can turn into an exchange of bad practices or even a race to the bottom in terms of policies. For example, circular migration schemes frequently discussed at the Global Forum can have extremely negative consequences in terms of human rights, including on access to economic and social rights, the right to family life and protection from exploitation. 53. At its meeting in 2010, participating States agreed to conduct an assessment of the Global Forum. As noted in the consolidated assessment paper on the strategic and political analysis phase of the assessment (phase 2), 6 the Global Forum does not monitor whether or how Governments follow up on its outcomes. It has a lack of institutional memory, as the Chair alternates annually, between developed and developing countries, and despite the existence of a small support unit, it does not have a permanent secretariat. The assessment paper suggested the creation of a multi-year agenda and noted the need for appropriate and efficient supporting structures. 54. The consolidated assessment paper acknowledged that interaction with civil society stakeholders had greatly enriched the Global Forum process and recommended that interaction with civil society be improved. During each Global __________________ 5 6 10/26 Global Forum on Migration and Development, “Background and objectives”. Available from www.gfmd.org/en/process/background. Available from www.gfmd.org/documents/mauritius/consolidated_assessment_paper_final_ draft_30_september_2012.pdf. 13-42115