UNITED NATIONS — The issue of what to do about the world's 65.3 million displaced people takes center stage at the United Nations General Assembly on Monday when leaders from around the globe converge in New York for the first summit on Addressing Large Movements of Refugees and Migrants.

With more people forced to flee their homes than at any time since World War II, leaders and diplomats are expected to approve a document aimed at unifying the U.N.'s 193 member states behind a more coordinated approach that protects the human rights of refugees and migrants.

“If we are able to translate that paper into a response in which many actors are going to participate, we will solve a lot of problems in emergency responses and in long-term refugee situations like the Syrian situation,” said Filippo Grandi, the U.N.'s high commissioner for refugees.

But the document is not legally binding and comes at a time when refugees and migrants have become a divisive issue in Europe and the United States.

A number of countries rejected an earlier draft of the agreement that called on nations to resettle 10 percent of the refugee population each year, which has led to criticism from human rights groups. The U.S. and a number of other countries also objected to language in the original draft that said children should never be detained, so the agreement now says children should seldom, if ever, be detained.

“Instead of sharing responsibility, world leaders shirked it. The U.N. summit has been sabotaged by states acting in self-interest, leaving millions of refugees in dire situations around the world on the edge of a precipice,” Amnesty International Secretary General Salil Shetty said in a statement.

U.N. Secretary-General Ban Ki-moon, whose report on refugees and migrants laid the basis for the summit document, said he was aware of the criticism. But, “as you will see, my report was a strong one,” he said.