Marrakech, Morocco · 10 December 2018 — Representatives from 164 governments gathered at an intergovernmental conference in Marrakech to adopt the Global Compact for Safe, Orderly and Regular Migration (GCM) — the first-ever intergovernmentally negotiated United Nations agreement to provide a comprehensive framework for global cooperation on international migration.
UN Secretary-General António Guterres, in his opening remarks, described the Compact as a "roadmap to prevent suffering and chaos," emphasising that it was designed to provide a platform for "humane, sensible, mutually beneficial action" on one of the defining issues of the 21st century.
Origins and Negotiation Process
The path to the Global Compact began with the 2016 New York Declaration for Refugees and Migrants, in which UN Member States unanimously recognised the need for a comprehensive approach to human mobility. The Declaration launched two parallel processes: one leading to the Global Compact on Refugees, and the other to the Global Compact for Migration.
The migration compact was negotiated over a period of approximately 18 months, culminating in the final text agreed in July 2018. The negotiations were co-facilitated by the Permanent Representatives of Switzerland and Mexico to the United Nations. The process involved extensive consultations with governments, civil society organisations, the private sector, and migrant communities.
A Non-Binding Cooperative Framework
A central feature of the Compact — and one that generated significant political controversy — is its non-legally binding nature. The agreement functions as a cooperative framework rather than a treaty, explicitly respecting the sovereign right of states to determine their own migration policies.
Secretary-General Guterres, in his Marrakech address, directly addressed what he termed "many falsehoods" circulating about the agreement. He clarified three key points:
- The Compact is not legally binding and does not create new legal obligations under international law.
- It does not allow the UN to impose migration policies on member states.
- It does not create a new right for migrants to go anywhere they choose.
The 23 Objectives
The Compact's 23 objectives are designed to address migration comprehensively, covering the full cycle of migration — from the decision to move, through transit and arrival, to return and reintegration. The objectives span several thematic areas:
Data and governance: Collecting and utilising accurate migration data; ensuring comprehensive migration governance at national and local levels.
Legal pathways and rights: Providing legal identity and documentation; enhancing availability and flexibility of pathways for regular migration; reducing vulnerabilities in migration.
Cooperation and border management: Improving coordinated border management; enhancing consular protection; cooperating on search and rescue.
Integration and inclusion: Eliminating discrimination; investing in skills development; facilitate access to services for migrants.
Return and reintegration: Cooperating on safe and dignified return and reintegration; establishing mechanisms for portability of social security entitlements.
Political Controversy and Opposition
Despite its non-binding character, the Compact became a lightning rod for political controversy in several countries. The United States, under the Trump administration, had withdrawn from the negotiation process in December 2017, citing concerns that the Compact could undermine national sovereignty. Several other countries, including Hungary, Austria, Poland, and the Czech Republic, subsequently announced they would not endorse the agreement.
In some countries, the Compact became the subject of intense domestic political debate. In Belgium, the controversy contributed to the collapse of the governing coalition when a coalition partner withdrew its support over the government's decision to endorse the Compact. In the United Kingdom, the government announced it would not endorse the Compact, though it stated this was for procedural rather than substantive reasons.
Significance for Africa
The Global Compact holds particular significance for Africa, which has one of the most mobile populations in the world. According to UN data, there were approximately 272 million international migrants globally in 2019, with Africa accounting for a significant and growing share.
The Compact's emphasis on facilitating regular migration pathways and reducing the costs of remittances directly addresses priorities for African countries. Remittances to Sub-Saharan Africa totalled approximately $46 billion in 2018, representing a critical source of external finance for many economies — often exceeding foreign direct investment and official development assistance.
The agreement also aligns with continental frameworks such as the African Union's Migration Policy Framework for Africa and the Protocol on Free Movement of Persons, which was signed alongside the AfCFTA in March 2018. The Compact's emphasis on intra-regional migration cooperation mirrors the AU's recognition that the vast majority of African migration occurs within the continent.
Implementation and the UN Migration Network
Following the Compact's adoption, the UN established the UN Migration Network to support member states in implementing the agreement's objectives. The Network, led by the International Organization for Migration (IOM), brings together relevant UN entities to provide coordinated, system-wide support to governments.
The Compact includes a follow-up and review mechanism, with the first International Migration Review Forum scheduled for 2022. This forum is designed to provide a platform for governments to share progress, challenges, and best practices in implementing the Compact's objectives.
A Foundational Step
The Global Compact for Migration represents a foundational step in the development of international cooperation on human mobility. While its non-binding nature and the political controversy surrounding it have led some observers to question its practical impact, the agreement has established a shared vocabulary, a common set of objectives, and a platform for dialogue that did not previously exist.
As Secretary-General Guterres noted in Marrakech, the Compact is rooted in two fundamental ideas: that migration is a natural and historical phenomenon that should be managed to be safe rather than left to become irregular and dangerous, and that national policies are more likely to succeed when supported by international cooperation. Whether these principles translate into meaningful policy change will depend on the commitment of individual governments in the years ahead.
Sources:
- United Nations, "Governments Adopt Global Migration Pact to Help 'Prevent Suffering and Chaos,'" 10 December 2018
- UN News, "Global Compact for Migration: UN Chief Hails 'Roadmap to Prevent Suffering and Chaos,'" December 2018
- UK Parliament, House of Commons Library, "The Global Compact for Migration," CBP-8459, 2018
- IISD, "Global Compact for Migration Adopted," December 2018
- Migration Data Portal, "The Global Compact for Migration," 2018
FIRAT Editorial Board
Institutional Research Desk · Foresight Institute of Research and Translation
The collective editorial and research translation board of FIRAT, synthesising peer-reviewed evidence, policy briefs, and division milestones across our seven foundational research pillars.
