A new U.N. report aims to reframe the way many countries deal with refugees and migrants, creating a responsible and predictable international system to handle them at a time when their numbers are at the highest level since the world body began keeping track.

The report was written in preparation for a high level meeting in the General Assembly on Sept. 19 to address the issue of large movements of refugees and migrants. That meeting will be followed by a summit organized by U.S. President Barack Obama, where leaders will be asked to pledge money in response to the problem.

The report recommends that U.N. member nations vote on two global compacts, one involving responsibility sharing for refugees, and another compact strengthening global governance of migration.