THE WORLD CUSTOMS ORGANIZATION - Past Present and Future
Hector Hugo Juarez2021, THE WORLD CUSTOMS ORGANIZATION - Past, Present and Future
https://doi.org/10.1007/978-3-030-85296-2visibility
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This book will take you through the past, the present and into the future of the flagship institution of the international customs community: the World Customs Organization (WCO). Our purpose is to present to you, in a comprehensive, orderly and synthetic manner, the enormous contributions that this prestigious and recognized institution has been making to the secure growth of world foreign trade. In the development of the text, special consideration has been given to the instruments relevant to day-to-day customs work and which constitute the flagships of the WCO (the Harmonized System Convention, the Revised Kyoto Convention, the SAFE Framework of Standards, among many others), as well as to those issues which are currently of particular relevance to the WCO, to those issues that are currently of special interest to the world Customs community (Cross Border Electronic Trade, Trade Facilitation, the Future Customs Agenda, to mention but a few), trying to reconcile the various practical aspects of Customs operations with their theoretical underpinnings. In short, these pages will be of great interest to all foreign trade operators, in particular to customs officials, customs brokers, carriers and international forwarding agents, managers of importing and exporting companies, as well as to all those (professionals and students) who wish to deepen their knowledge of the exciting world of Customs and International Trade.
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THE MODERN TRENDS OF THE FOREIGN TRADE POLICY IMPLEMENTATION: IMPLICATIONS FOR CUSTOMS REGULATIONS
Lex Portus, 2018
The paper analyses basic transformation tendencies in the international trade policy standards generated within frameworks of global and regional institution and their influence upon customs and border formalities. The transformation of standards is also supplemented with crucial changes in a rule-making process, that conventionally has been an exclusive competence of national states. That rule-making changes are charac-terised by transferring the significant amount of competence from the national states to the global and supranational level, as well as by introduction new types of rule-making actors (both public and private) and new types of law sources. This urges us to apply to the analyses the concepts of global governance, transnational law and global administrative law, which focus on the above-mentioned transformations in the field. Customs authorities now are experiencing the transition of their initial mission from merely revenue collectors to actors responsible for extensive range of tasks, including safety and security issues, trade facilitation, joint border management, etc. All these tasks should be performed at the high level of harmonisation, unification and standardization with recognised international and regional rules and regulations. Due to the specifics of the new mission of customs authorities, the paper primary focuses on two relatively new tasks of security and trade facilitation. And also paper discuses two basic modern instruments to implement such tasks – the operation of Single Window for international trade and the application of good governance principles to customs routine operations. The essential point is that two instruments are not focused merely on improving the way customs and border formalities are performed by authorities, but also starve the whole system of border management into comprehensive reform of both interagency and intra-agency procedures and operations. The Single Window facility provides such reform through joint application of information technology based on internationally approved standards. The WTO rules for good governance for application of customs legislation in fact demands from member states to share common values and princi- ples, originally emerged within legal systems of western developed countries. The key words: trade policy, customs regulations, customs formalities, trade faci- litation, security, global supply chain, Single Window, good governance, WTO, WCO, UN/SEFACT Introduction.
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Customs and trade security policy
2014
The aim of research is to identify the most significant and the most risky areas of the business activities' assessment and to create a new model of the customs audit. In the article the role of customs seeking to facilitate legitimate trade has been revealed. The influence of customs on the public interests' protection and social as well as economic development was analysed. After analysing the customs activities monitoring and managing the international flow of goods, customs contribution ensuring the increased security of goods supply network was revealed. The concepts of the business activities' assessment have been examined, a comparative analysis of the business activities assessment's models has been conducted, the areas of business enterprises activities' assessment suitable for the customs audit's model have been identified. After studying the business enterprises activities assessment's models and the customs audit's models of various countriespointing out the key areas of business activities' assessment-a theoretically reasoned and empirically based customs audit's model which complemented the existing customs audit's theoretical and methodological basis has been introduced. The importance of AEO (Authorised Economic Operator) customs model-being a tool of enterprises activities' assessment-was investigated.
HÉCTOR HUGO JUÁREZ ALLENDE
THE WORLD CUSTOMS
ORGANIZATION
PAST, PRESENT AND FUTURE
FOREWORD BY:
RICARDO TREVIÑO CHAPA DEPUTY
SECRETARY GENERAL OF THE WCO
TRANSLATED BY:
Andrea María Paz
Victoria Martínez Adalid
IntroductIon
INDEX
Acknowledgment ..................................................................................................11
FOREWORD ........................................................................................................ 13
1. INTRODUCTION............................................................................................... 17
1.1. Legal status ................................................................................................ 23
1.2. Headquarters .............................................................................................. 25
1.3. Vision, Mission, Values ................................................................................. 27
1.4. Strategic Goals ............................................................................................ 28
1.5 Members..................................................................................................... 29
1.6 Budget.........................................................................................................41
1.7 Languages .................................................................................................. 43
1.8 Historical background ................................................................................... 45
2. INSTITUTIONAL STRUCTURE ......................................................................... 57
2.1. The Council ................................................................................................ 57
2.1.1. The Policy Commission....................................................................... 62
2.1.1.1. The Audit Committee ............................................................. 66
2.1.1.2. Private Sector Consultative Group ........................................... 67
2.1.1.3. Integrity Sub-Committee ..........................................................70
2.1.2. The Finance Committee...................................................................... 72
2.1.3. Permanent Technical Committee .......................................................... 76
2.1.4. Technical Committee on Rules of Origin ............................................... 77
2.1.5. Capacity Building Committee .............................................................. 78
2.1.6. Harmonized System Committee ........................................................... 79
2.1.7. Enforcement Committee ..................................................................... 82
2.1.8. Technical Committee on Customs Valuation ........................................... 82
2.1.9. Working Parties ................................................................................. 83
2.2. The Secretariat ........................................................................................... 84
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2.2.1. Tariff and Trade Affairs Directorate ........................................................ 90
2.2.2. Compliance and Facilitation Directorate .................................................91
2.2.3. Capacity Building Directorate ...............................................................91
2.3.Customs Regions ......................................................................................... 92
3. LEGAL INSTRUMENTS .................................................................................... 95
3.1. International Conventions ............................................................................ 96
3.2. Recommendations .....................................................................................108
3.3. Declarations ..............................................................................................112
3.4. Resolutions ................................................................................................113
3.5. Opinions....................................................................................................114
3.6. Memorandums of Understanding ................................................................117
3.7. Other Agreements administered and managed ..............................................119
3.8. Dispute Settlement Mechanisms .................................................................. 122
4. THE WCO’S RELATIONSHIP WITH OTHER ORGANIZATIONS ........................ 125
4.1. United Nations Organization (UN) ................................................................ 125
4.1.1. United Nations System ..................................................................... 126
4.2. World Trade Organization (WTO) .................................................................. 137
4.3. Other organisms ........................................................................................ 140
4.3.1.Partner organizations ........................................................................ 140
4.3.2. International organizations .................................................................141
4.3.3. REGIONAL INTERGOVERNMENTAL ORGANIZATIONS ...................... 147
4.3.4. Donor organizations ......................................................................... 150
4.3.5. Business organizations ..................................................................... 153
4.3.6. Academic organizations.................................................................... 157
4.4. Purview. Competence conflits.......................................................................161
5. WCO RELATION WITH CUSTOMS BROKERS ................................................. 165
5.1. Optional or mandatory ............................................................................... 167
5.2. Fees and charges ...................................................................................... 168
5.3. Licence .................................................................................................... 168
5.4. Natural and legal persons ........................................................................... 169
5.5. Examination .............................................................................................. 169
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IntroductIon
5.6.Cooperation............................................................................................... 170
5.7. Relation of the WCO with the International Federation
of Customs Brokers Associations (IFCBA) ............................................................171
6. NOMENCLATURE AND CLASSIFICATION OF GOODS .................................... 173
6.1. Introduction .............................................................................................. 173
6.2. Historical backgrounds ............................................................................... 175
6.3. Structure of the harmonized system ............................................................. 182
6.4. Classification opinions ................................................................................ 183
6.5. Amendment process .................................................................................. 183
6.6. Dispute settlement ..................................................................................... 185
7. VALUATION OF GOOD ................................................................................... 187
7.1. Historical background ................................................................................ 187
7.2. WTO valuation agreement........................................................................... 189
7.3. Benefits of the agreement ............................................................................191
7.4. Methods ....................................................................................................191
7.4.1. Method 1 - Transaction value ..............................................................191
7.4.2. Methods 2 - Transaction value of identical goods ..................................191
7.4.3. Method 3 – Transaction value of similar goods..................................... 192
7.4.4. Method 4 - Deductive value............................................................... 192
7.4.5. Method 5 - Computed value .............................................................. 193
7.4.6. Method 6 - Fall-back method ............................................................. 193
7.5. Customs valuation and transfer pricing ......................................................... 193
8. ORIGIN OF GOODS ....................................................................................... 195
8.1. Agreement on rules of origin ....................................................................... 197
8.2. Preferential rules of origin ............................................................................201
8.3. Committees on origin (WTO and WCO)......................................................... 205
9. ENFORCEMENT ............................................................................................ 209
9.1 Customs fraud ........................................................................................... 209
9.2. Drugs and precursor chemicals....................................................................216
9.3. Environment ............................................................................................. 224
9.4. Intelligence and risk managment ................................................................ 226
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the World customs organIzatIon
9.4.1. Regional intelligence liaison offices .................................................... 227
9.5. Health and safety ...................................................................................... 228
9.6. Finance and safety .................................................................................... 229
9.7. Security .....................................................................................................231
9.8. Trademark counterfeiting ............................................................................ 235
9.9. Electronic crime ........................................................................................ 238
9.10. Trafficking cultural property ....................................................................... 239
10. PROCEDURES AND FACILITATION............................................................... 243
10.1. Legitimate global trade facilitation ............................................................... 243
10.2. The Revised Kyoto Convenion ................................................................... 244
10.2.1. Introduction ................................................................................... 244
10.2.2. Historical background ..................................................................... 245
10.2.3. General aspects ............................................................................. 248
10.2.4. New review.....................................................................................261
10.3. SAFE Framework of Standards .................................................................. 262
10.3.1. The paradigm shift ......................................................................... 262
10.3.2. Brief historical background .............................................................. 267
10.3.3. Structure ....................................................................................... 269
10.3.4. Implementation .............................................................................. 273
10.3.5. Benefits ........................................................................................ 273
10.4. Authorized economic operator ................................................................... 275
10.5. Single window ......................................................................................... 277
10.6. Time Release Study ..................................................................................281
10.7. Coordinated Border Management .............................................................. 285
10.8. The Istanbul Convention .......................................................................... 288
10.9. The ATA system ...................................................................................... 290
10.10. Cross-Border E-commerce .......................................................................291
10.10.1. Introduction ..................................................................................291
10.10.2. Classification. Postal System. Courier System ................................... 294
10.10.3. Challenges and creation of working group ....................................... 299
10.10.4. Framework of standards on cross-border e-commerce ...................... 304
10.10.5. Summary of the work carried out by the wco .................................... 306
10.10.6. Current status............................................................................... 309
6
IntroductIon
10.11. Globally networked customs.................................................................... 309
10.12. Trade facilitation agreement (wto) ..............................................................310
10.12.1. Historical background. evolution ...................................................... 311
10.12.2. Main aspects ................................................................................313
10.12.3. The role of customs in its development and implementation ................314
11. CAPACITY BUILDING ....................................................................................317
11.1. Regionalization ........................................................................................ 322
11.2. Columbus programme .............................................................................. 324
11.3. Picard development programme ................................................................ 326
11.4. Leadership and managment development programme ................................. 328
11.5. Expert recruitment support ........................................................................ 330
11.6. Mercator programme ................................................................................ 332
11.7.INCU ....................................................................................................... 335
11.9. CLiKC! .................................................................................................... 336
12. INTEGRITY .................................................................................................. 339
12.1. Definition ............................................................................................... 339
12.2. The Arusha Declaration ............................................................................341
12.3. Intregrity Development Guide ................................................................... 344
12.4. Model code of ethics and conduct ............................................................. 345
12.5. Compendium of integrity best practices ...................................................... 347
13. PACKAGES ................................................................................................. 349
13.1. Economic competitive package ................................................................ 350
13.2. Revenue package ................................................................................... 350
13.3. Compliance and enforcement package ..................................................... 352
13.4. Organizational development package ......................................................... 353
14. OTHER INSTRUMENTS ................................................................................ 355
14.1. Glossary of International Customs Terms ..................................................... 355
14.2. Performance measurement framework ....................................................... 358
14.3. Data model ............................................................................................. 360
14.4. Customs laboratories.................................................................................361
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the World customs organIzatIon
14.5. Agreements of assistance and exchange of information ................................ 364
14.5.1. Nairobi Convention ........................................................................ 364
14.5.2. Johannesburg Convention .............................................................. 368
15. RESEARCH ...................................................................................................371
16. APPRAISAL OF PERFORMACE .................................................................... 375
17. THE AGENDA OF THE FUTURE ....................................................................381
17.1. Blockchain .............................................................................................. 382
17.2. Artificial intelligence (AI) ............................................................................ 383
17.3. Internet of things ...................................................................................... 384
17.4. Biometrics .............................................................................................. 386
17.5. Drones ................................................................................................... 387
17.6. 3D printing.............................................................................................. 388
17.7. Intangibles .............................................................................................. 388
18. CLOSING WORDS .........................................................................................391
BIBLIOGRAPHY ................................................................................................. 395
ANNEXES .......................................................................................................... 399
ANNEXED I - Convention establishing a Customs Co-operation Council ................ 399
ANNEXED II - Protocol to the Agreement between the Kingdom of Belgium
and the Customs Cooperation Council ................................................................417
ANNEXED III - Agreements of the Customs Cooperation Council ........................... 424
ANNEXED IV - Customs Self-Assessment Template .............................................. 430
8
IntroductIon
I dedicate this book to my wife
Daniela and my children Paula
and Mauro, for their enormous
patience and understanding in the
long hours spent writing
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the World customs organIzatIon
10
IntroductIon
ACKNOWLEDGMENT
During the development of the research and in the process of collecting
information, I have received the support of numerous specialists in the field. I
am especially thankful to all of them for generously sharing their experience
and knowledge.
In particular, I am mainly grateful to María Luisa Carbonell, a high-ranking
official of the Directorate General of Customs of the Argentine Republic, a
specialist in international issues of the institution, with whom we share our
fanaticism for the World Customs Organization, and under this, participated
in lengthy e inspiring discussions. Without her support, this text would not
have been possible. Her guidance has had a clarifying, lasting, and invaluable
impact.
I am also indebted to Ana Hinojosa, hierarchical official of the Customs
Service of the United States of America (Customs and Border Protection),
who was in charge of the WCO’s Compliance and Facilitation Directorate
(2016/2019), and to whom I owe her permanent support and motivation.
I must dedicate a separate paragraph to Edmond Galle, who was responsible for the WCO Library for more than 30 years -the living history of the
Organization. Without his collaboration, it would have been impossible for me
to navigate and dive into the historical aspects and details that only he remembers as he lived them first-hand. His contribution has been fundamental un11
the World customs organIzatIon
derstanding the early years of the organism. Slight nuances and stories come
alive in his memories and tales.
My thanks also to the current Deputy Secretary General of the WCO, Ricardo
Treviño Chapa, for reading the draft and for his accurate observations and
comments that, in addition to providing tranquility to the author, have provided
the text with a particular richness and have kept it up-to-date.
A special mention to María Teresa Rivas, a specialist in translation of international customs documents, who freeheartedly and kindly carried out the
meticulous and arduous task of the final control of this work.
At this point, I must clarify that the responsibility for any error in the book,
both in its content and in its writing, rests solely and exclusively with the author.
12
Prologue
FOREWORD
Dear reader, I am pleased to welcome you to the reading of a wonderful
work that will take you through the past, to know the present and to enter into
the future of the flagship institution of the international customs community, the
customs house in the world: the World Customs Organization (WCO).
This institution was created in 1952, under the name of Customs Cooperation
Council, to optimize the efficiency and effectiveness of customs, especially concerning the harmonious treatment of the international flow of goods, as well as
providing a uniform global solution in terms of tariff classification and customs
valuation of goods. Initially made up of only 17 Customs Administrations, the
WCO currently comprises 183 Members that treat 98% of global trade.
Throughout all these years, the only intergovernmental organization dedicated one hundred percent to customs issues has successfully led the many
transformations and trends in processes and business models. The WCO has
highlighted internationally the wide and complex customs function that passes through the tariff, collection, and trade issues, as well as national security
functions. It is thanks to the technical discussions that take place in the WCO
Working Groups that it is possible to develop guides and tools that always
seek to strengthen control and promote the facilitation of international trade.
The implementation of these tools is the result of the commitment made by its
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the World customs organIzatIon
members and, if necessary, through its extensive network of experts, the WCO
provides the necessary capacity building to achieve this.
On this occasion, as the current Assistant Secretary-General of the WCO, it is
with great pride that I present to you this work written by Dr. Héctor H. Juárez
Allende, a lawyer, and prominent customs specialist, who is currently serving
as Judge of the Argentine Tax Court, the jurisdictional body where the resolutive acts of the customs administration of his country are reviewed (on appeal).
Before assuming the magistracy, the author worked for many years as a customs official and as such, he reached the highest technical level of the agency.
His extensive knowledge of international customs law allowed him to represent the Argentine Republic in the negotiation and drafting of the MERCOSUR
Customs Code.
As a customs officer and as a university teacher, he has repeatedly visited
our headquarters in Brussels, which has allowed him to collect information
“on-site”, and to consolidate a network of contacts and friends who have provided him with accurate and valuable information from different levels that the
reader will find overturned in these pages.
Small tints and hues reveal a researcher who has not only compiled rigorous
information, but who has analyzed it methodically, and through the lens of an
observer who has been in the operational field or, as it is usually said, in the
trench. No one better than a godson of the House, to study it, apprehend it,
and display it.
It is enriching the reading of the historical facts linked to the genesis of the
Institution, its first moments, its first conformation, the embryonic development
of its structure, its first press release, small details that traced the contours of the
today mature and robust organism.
The author’s teaching capacities are shown in how he introduces the structure and operation of the Organization, a very arduous topic, that he presents
with diagrams and the right dose of theoretical content which aids understanding, in particular, of the aspects related to human resources and the administration of its budget.
Separate paragraph deserves the approach of the relations of the organization with other international organisms, where the author abounds in details
14
Prologue
that allow understanding the enormous task that, in the representation of the
customs of the world, carries out the WCO before the international community.
In this line of interrelations, the author has dedicated a chapter to analyzing
the relationship between the WCO and one of its strategic allies, the private
sector, and, in particular, customs brokers.
The numerous normative instruments that the Organization uses on a daily
basis in the performance of its functions have been grouped and analyzed
understandably and highlighting their relevant, specific, and differentiating
aspects.
The customs technique is also present in the approach of the aspects related to the Tariff Classification, the Customs Valuation, and the Origin of goods,
highly specialized topics that identify the customs community.
The fight against customs fraud as well as issues related to the facilitation of
international trade are harmoniously treated from the perspective that both are
part of a delicate balance of forces that must enable the flow of goods and the
development of legitimate trade.
It is highlighted that strengthening the capacities of customs officers is essential to perfect their respective profiles according to their competences,
guaranteeing continuous, updated and integrity-based training that favors an
inclusive approach, greater cooperation with other customs, with the private
sector and with other intergovernmental organizations, as well as the achievement of sustainable development goals.
In this regard, I must remember that motivating leadership, collective decision-making, transparency of information for its members and strategic partners, consensus on common interests, inclusion in the development and execution of programs, the effectiveness and efficiency in the use of its resources,
instruments and tools and clear accountability not only to Members but also to
their donors, constitute the highest world-class standards implemented by the
WCO and duly outlined in the work.
On the other hand, the evolution in the adaptation capacity of the WCO to
constantly changing environments is verified through the development of the
Strategic Plans of the Organization and its regions, as well as the constant updating of the Packages that provide Customs a wide range of instruments and
tools for the purposes of their application in their respective territories.
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the World customs organIzatIon
At the same time, it is highlighted in the text that the areas of research and
performance measurement have become essential, together with digital development and data governance, in order to strengthen risk management and
anticipation strategies of customs administrations around the world in its efforts
to achieve excellence.
The current cross-border trade environment requires thinking about a comprehensive, visionary customs management, aware of the different realities
and needs at the local, regional and global level, with special emphasis on
strategic management, communication and collaboration, both nationally and
internationally, and the use of innovation to mitigate risks, facilitate trade, ensure fair collection and protection of society, fight against transnational counterfeiting, terrorism and crime, while increasing chain security levels of supply
as well as promoting sustainable initiatives for the care of our planet. His exploration in the work may constitute a point of reflection in this regard.
Likewise, we must be aware that we are entering a new industrial era in which
a series of innovations based on information technology and the Internet could
have significant repercussions on production processes and on the way international trade develops. The “Internet of Things”, artificial intelligence, 3D
printing, blockchains, and other technologies, create new challenges for the
Institution.
These dizzying and disruptive changes are analyzed in the final section of
the volume, in the chapter dedicated to the WCO Future Agenda, where we
are allowed to see the impact that these new technologies will have on the
evolution of customs activity. Advantages and disadvantages, risks, and opportunities are duly examined and presented.
The text presented in this brief prologue constitutes the culmination of an
enormous effort to publicize the trajectory of an International Organization
based on cooperation and multilateralism, which permanently strives for the
common good and development of its member administrations, providing
them the tools and technical assistance they may need
RICARDO TREVIÑO CHAPA (MBA)
DEPUTY SECRETARY GENERAL
WORLD CUSTOMS ORGANIZATION
16
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International TradeTrade FacilitationImportWorld Trade OrganizationInternational Customs LawSmugglingExportsTariff and Non-tariff BarrierCustomsRules of OriginInternational logisticsCustoms ProceduresDumpingImport and Export Customs CleranceWCOWTO/GATTCross-Border E-CommerceWorld Customs Organization