A/68/283 institutional framework on migration. There has been considerable movement and interest shown over the past decade in terms of the two High-level Dialogues on International Migration and Development, the creation of the Global Forum on Migration and Development and the Global Migration Group and recent growth in IOM membership, as well as the development of regional initiatives, both through regional organizations and regional consultative processes. Thus, there seems to be some recognition of the need for more migration governance. 123. States can commit to more migration governance while at the same time maintaining their sovereignty in relation to deciding who enters and stays in their territory. 124. Better global migration governance would be advantageous for all States because they cannot deal with a global phenomenon unilaterally, bilaterally or even regionally only. Enhanced governance would allow for better responsibility-sharing on the part of States associated with migration. While the Global Forum on Migration and Development provides a useful platform for informal discussions between States, it should not be seen as a substitute for discussions about migration in the United Nations. More frequent high-level dialogues could also lead to closer linkages and synergies between discussions within and those outside the United Nations. 125. The growing number of regional consultative processes can be trustbuilding exercises but can also lead to duplication and contradictions. While bilateral and regional cooperation, including through such processes, regional organizations and bilateral agreements, may contribute to the coherence of global migration governance, these initiatives must fully take into consideration respect for the human rights of migrants and, in this regard, should be transparent, with effective monitoring and accountability mechanisms. 126. Migrants should always be seen first and foremost as human beings with inherent human rights, rather than agents for development. In this regard, a human rights framework for global migration governance is needed. Only when conceived of in terms of human rights will migration be able to fulfil its potential as an enabler of human development. The universal human rights framework must therefore guide all development cooperation and programming in all parts of the United Nations system relevant to migration. B. 1. Recommendations Recommendations to States 127. All States should establish human rights-based, coherent and comprehensive national migration policies. These policies should address the “pull” factors for irregular migration, namely the unrecognized need for migrant labour in destination States, including for low-skilled workers, and the corresponding need to open up a greater number of regular migration channels, which would lead to fewer instances of irregular migration, less smuggling of migrants, less exploitation of irregular migrants and less loss of life. In this respect, States must ensure that “irregular employers” are sanctioned, labour exploitation is punished and migrants, including those in an irregular situation, 13-42115 23/26