Post Clearance Audit

CMTA_CAO_Draft_DOF_Reviewed_Post Clearance Audit_2016-09.
28
[DATE]
CUSTOMS ADMINISTRATIVE ORDER (CAO)

NO. _____________
SUBJECT: POST CLEARANCE AUDIT AND PRIOR DISCLOSURE PROGRAM

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Introduction. This CAO implements the (a) post clearance audit functions of the
Bureau, found in Sections 1000 to 1006, Title X; (b) the function of the Bureau
regarding assessment and collection of revenues from imported goods and other dues,
fees, charges and penalties accruing under this CAO as provided in Section 202(a)
Chapter 1, Title II, in relation to Section 1131, Chapter 7, Title XI, and (c) other related
provisions of Republic Act No. 10863 otherwise known as the Customs Modernization
and Tariff Act (CMTA).
The CMTA expressly repeals the Tariff and Customs Code of the Philippines, as
amended, and all other laws, acts, presidential decrees, executive order, rules and
regulations or parts thereof inconsitent with the CMTA. Specifically relevant to this CAO,
the following are expressly repealed by the CMTA: Executive Order No. 155 s. 2013 and
Department Order Nos. 011-2014 and 044-2014 issued by the Department of Finance
(DOF).
Section 1.Scope.This CAO covers:
1.1. The post clearance audit of all records required to be kept by all Importers,
beneficial or true owners of imported goods, customs brokers, agents,
locators as provided for in Sections 1003 (a), (b), and (c), Title X of the
CMTA; and
1.2. The Prior Disclosure Program (PDP) as a compliance and revenue measure.
Section 2.Objectives.
2.1. To prescribe the principles, purposes, mechanics and methodology of the
post clearance audit system, recordkeeping requirement, and the period
covered by the conduct of audit;
2.2. To implement the post clearance audit under a regime of informed

compliance;
2.3. To stress the importance of the requirement to keep records and to comply
with other legal obligations of Importers and other customs stakeholders and
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CMTA_CAO_Draft_DOF_Reviewed_Post Clearance Audit_2016-09.28
the adverse consequences of non-compliance with customs rules and

regulations;
2.4. To promote compliance with customs laws and regulations by providing a

non-punitive facility for Importers to voluntarily disclose or report to customs
plain errors or innocent mistakes in the goods declarations and in the
payment of duties, taxes and other charges;
2.5. To provide a clear set of policies and guidelines in the application and
availment of the PDP on fines and surcharges for deficiencies in the payment
of duties and taxes; and
2.6. To generate additional customs revenues with least administrative cost to

both the government and the concerned Importer.
Section 3.Definition of Terms.
3.1. Importer shall include the following:
3.1.1. Importer-of-record or consignee, owner or declarant, or a party

who:
a. Imports goods into the Philippines or withdraws admitted goods

from the free zones into the customs territory for consumption or
warehousing; files a claim for refund or drawback; or transports
or stores such goods carried or held under security; or
b. Knowingly causes the importation or transportation or storage of
imported goods referred to above, or the filing of refund or
drawback claim.
3.1.2. An agent of any party described in Section 3.1 of this CAO;
3.1.3. A person whose activities require the filing of a goods declaration;

or
3.1.4. A person ordering imported goods from a local importer or supplier

in a domestic transaction shall be considered an importer if:
a. the person placing the order controls the terms and conditions of
the importation;
b. the person placing the order and the importer or supplier are
related in such a way that the former may be considered as the
beneficial or true owner of the imported goods, as may be
exemplified by the following circumstances:
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i) the person placing the order is the sole buyer of the goods
imported by the importer on record;
ii) the importer on record is an affiliate of the juridical entity
which placed the order;
iii) the importer on record and the entity which placed the
order are owned by the same set of majority stockholders
in both corporations;
iv) the person or entity placing the order furnished the
importer or the exporter with technical data, molds,
equipment, other production assistance, material,
components, or parts with knowledge that these will be
used in the manufacture or production of imported goods /
goods to be imported.1
3.2. Customs Clearance- refers to the completion of customs and other

government formalities necessary to allow goods to enter for
consumption, warehousing, transit or transshipment, or to be exported or
placed under another customs procedure. 2
3.3. Inadvertent Error - shall mean a mechanical, electronic or clerical error

that an Importer demonstrates was not intentional and occurred
notwithstanding the maintenance of internal controls reasonably adapted to
avoid such errors.3
3.4. Prior Disclosure Program – is a program based on international best

customs practice, authorizing the Commissioner of Customs to accept prior
disclosure by Importers of errors in goods declaration resulting in deficiency
in duties and taxes on past importations. 4
3.5. Locators - persons authorized to bring imported goods into free zones, such
as the special economic zones and free ports.5
3.6. Fraud – commission or omission of any act resulting in material false

statements such as submission of false or altered documents in connection
with any importation knowingly, voluntarily, and intentionally done to reduce
the taxes and duties paid either through misdeclaration, misclassification or
undervaluation.6
1
cf CMTA, Title X, Section 1003
2
cf CMTA, Title X, Section 102 (k)
3
cf U.S.C.S. Appx 12 CFR § 202.2 and CMTA, Title X, Section 1005 (a)
4
cf U.S. Customs 1592 and WCO Agreement on Trade Facilitation Article 6: 3.6
5
cf CMTA, Title X, Section 1003 (c)
6
cf TCCP, Section 3611 (c) and CMTA, Title X, Section 1005 (b)
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3.7. Negligence – failure to exercise reasonable care and competence, through

act or acts of omission or commission, in ensuring that a statement made is
correct resulting in a deficiency in taxes and duties paid. 7
3.8. Misdeclaration – refers to a false, untruthful, erroneous, or inaccurate

declaration as to quantity, quality, description, weight or measurement of the
goods resulting in deficiency between the duty and tax that should have been
paid and the duty and tax actually paid.
3.9. Misclassification – refers to insufficient or wrong description of the goods

and use of erroneous tariff heading resulting in deficiency between the duty
and tax that should have been paid and the duty and tax actually paid.
3.10.Undervaluation – refers to a declared value that is lower than the correct

value of the imported goods by not reflecting the full price actually paid or
payable, or by failing to include any dutiable adjustment to the price of the
goods, or by using an incorrect valuation method, or by non-observance of
the valuation rules which results in a deficiency between the duty and tax
that should have been paid and the duty and tax actually paid.
Section 4.General Provisions.
4.1. Records to be Kept by the Bureau. The Bureau shall keep a database of
Importer and customs broker profiles which shall include a record of audit
results and the following information and papers:
4.1.1. Articles of incorporation;
4.1.2. The company structure, which shall include but not be limited to:
a. Incorporators and board of directors;

b. Key officers; and
c. Organizational structure;
4.1.3. Key importations;
4.1.4. Importation privileges enjoyed;
4.1.5. Record of Violations and Penalties;
a. Infringements committed;
b. Instances of prohibited importation;
7
cf TCCP, Section 3611 (a) and CMTA, Title X, Section 1005 (a)
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c. Instances of smuggling;
d. Instances of technical smuggling;
i) Misdeclaration
ii) Misclassification
iii) Undervaluation
4.1.6. Risk categories;
4.1.7. Audit Reports; and8
4.1.8. Other information and documents from the various offices of the
Bureau that may be necessary in order to facilitate the conduct of
post clearance audit.
4.2. Entities required to maintain and keep records.
4.2.1. Importers. - All importers, including those mentioned in the

definition of importers insofar as the application of post clearance
audit and Sec. 1005 of the CMTA are concerned, are required to
maintain and keep all records of their importations, books of
accounts, business and computer systems and all customs
commercial data including payment records.
4.2.2. Brokers and other parties. - All customs brokers and all other
parties engaged in customs clearance and processing, are required
to keep copies of the records covering transactions that they
handle.
4.2.3. Locators. - Locators are required to keep records of all its

activities, including in whole or in part, records on imported goods
withdrawn from said zones into the customs territory. 9
4.3. Purposes of keeping records. - The records shall be kept for the following
purposes:
4.3.1. For verifying the accuracy of the transaction value declared by the
importers/customs brokers on the import entry;
4.3.2. For conducting audit examination, inspection, verification and/or

investigation of the records in relation to specific transactions or to
8
9
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the adequacy and integrity of the manual or electronic system or

systems by which such records are created and stored; and
4.3.3. For collecting the proper duties and taxes.
4.4. Period and place to keep records. – Importers, brokers, and locators are
required to keep the records at their principal place of business for a period
of three (3) years from the date of importation.
4.5. Records Required to be Kept. The following records are required to be

kept by Importers, locators or persons authorized to bring imported goods
into free zones and all parties engaged in Customs Clearance and processing
for the purpose of post clearance audit:10
4.5.1. Company or entity structure including the following to the extent

that they are relevant for the verification of the accuracy of the
transaction value declared on the goods declaration and
necessary for the purpose of collecting the proper duties and
taxes on imports, as the case may be:
a. Articles of incorporation, articles of partnership, registration

certificate with the Department of Trade and Industry and the
like;
b. List of incorporators, stockholders, partners, board of
directors, owners;
c. Organizational structure;
d. Management and key personnel involved in import processing
including authorized declarants and their specimen
signatures;
e. Capital composition;
f. Stock and transfer book, General Information Sheet, list of
partners/owners;
g. Principals and subsidiaries, or affiliates and their capital
composition;
h. List of exporters/suppliers and nature of relationship with
importer pursuant to Section 701 (c), Chapter 1, Title VII of
the CMTA;
i. Audited financial statements and tax returns for income tax,
withholding tax, value added taxes, excise taxes,
documentary stamp taxes, and capital gains taxes;
j. General contracts and agreements with regular suppliers;
k. Company profile/history and description of operations;
l. Minutes of Board of Directors meetings; and
10
cf CAO No. 4-2004, Section IV.A.2
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m. Permits and licenses.
4.5.2. Ordering and purchase documentation to the extent that they are
relevant for the verification of the accuracy of the transaction value
declared on the goods declaration and necessary for the purpose of
collecting the proper duties and taxes on imports, including the
following:
a. Sales and other related agreements, in whatever form,
including, whenever applicable, those covering distribution,
royalty, agency, warranty, terms of payment and the like;
b. Correspondence or communication relating to the import
transaction, in whatever form, including, whenever applicable,
purchase orders, vouchers, confirmations, pro-forma invoices,
acknowledgement receipts, notices, advisories and the like;
and
c. Product description or specifications, such as brochures,
manuals, catalogues, pamphlets, fliers, literatures.
4.5.3. Shipping, importation, exportation and transportation

documentation including the following to the extent that they are
relevant for the verification of the accuracy of the transaction value
declared on the goods declaration and necessary for the purpose of
collecting the proper duties and taxes on imports, as the case may
be:
a. Goods declaration and proof of payment of duties and taxes;
b. Commercial, non-commercial invoices, and/or consignment
agreements;
c. Import and export licenses or permits;
d. Ocean bills of lading, master air waybills, house air waybills,
and/or consolidator bills of lading;
e. Shipping instructions and/or freight forwarders instructions;
f. Certificates of origin, certificates of eligibility, certificates of
inspection and loading and/or certificates of identification;
g. Freight and insurance contracts;
h. Packing lists;
i. Transshipment permits, boatnotes and/or special permits to
transfer;
j. Quota allocation and/or certificates;
k. Customs brokerage, logistics or forwarding agreements, billings,
statements of accounts and/or receipts;
l. Receipts for arrastre charges, cargo handling and storage fees;
m. Short shipped and/or bad order reports;
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n. Goods tally records;

o. Letters of credit, applications for letter of credit, bank details;
p. Remittance advice;
q. Credit card transactions;
r. Telegraphic money transfers;
s. Offshore monetary transactions;
t. Evidence of payments by any other means, including
information detailing non-cash compensation transactions;
u. Permit to operate Customs Bonded Warehouses, Customs
Facilities and Warehouses and Free Zones;
v. Formula of conversion/manufacture;
w. List of monthly importable materials/quota;
x. List of imported purchases;
y. Summary of export/local sales;
z. Summary of liquidated and unliquidated entries;
aa. List of sub-contractors;
bb. List of inventory;
cc. Production report; and
dd. Privileges enjoyed by the BOI registered Importers and Free
Zone locators.
4.5.4. Manufacturing, stock and resale documentation including the

following to the extent that they are relevant for the verification of
the accuracy of the transaction value declared on the goods
declaration and necessary for the purpose of collecting the proper
duties and taxes on imports:
a. Inward goods register/receipts journal;

b. Stock register/inventory records;
c. Production records;
d. Costing records;
e. Purchases book; and
f. Sales book.
4.5.5. The following bank documents, financial statements and other

accounting information to the extent that they are relevant for the
verification of the accuracy of the transaction value declared on the
goods declaration and necessary for the purpose of collecting the
proper duties and taxes on imports:
a. Cash receipts and disbursements books;

b. Subsidiary ledgers of accounts payable and accounts
receivable; and
c. Cheque records.
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d. Bank reconciliation records.
4.5.6. To the extent that they are relevant for the verification of the
accuracy of the transaction value declared on the goods declaration
and necessary for the purpose of collecting the proper duties and
taxes on imports, and if applicable, charts and codes of accounts,
general and subsidiary ledgers, general journal, accounting
instruction manuals, and systems and program documentation that
describes the accounting system used by the Importer; and
4.5.7. Whenever applicable, papers, books, registers, discs, films, tapes,

sound tracks, and other devices or things in or on which
information contained in the records described in Sections 4.5.1. to
4.5.6. of this CAO are recorded or stored.
Section 5.Post Clearance Audit.
5.1. Audit and Examination of Records. Within three (3) years from the date
of final payment of duties and taxes or Customs Clearance, as the case may
be, the Bureau may conduct an audit examination, inspection, verification,
and investigation of records pertaining to any goods declaration, which shall
include statements, declarations, documents and electronically generated or
machine readable data, for the purpose of ascertaining the correctness of
the goods declaration and determining the liability of the Importer for duties,
taxes and other charges, including any fine or penalty, to ensure compliance
with this CAO.11
5.2. Selection Criteria.
5.2.1. Post clearance audit of Importers shall be undertaken when firms

are selected by a computer-aided risk management system, the
parameters of which are to be based on objective and quantifiable
data which shall include, but not be limited to, the following:
a. Relative magnitude of customs revenue to be generated from the

firm;
b. The rates of duties of the firm's imports;
c. The compliance track records of the firm;
d. An assessment of the risk to revenue of the firm's import
activities;12
e. Country of Origin;
11
12
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f. Errors in the import declaration are detected which if uncorrected

would result in substantial revenue loss or grave distortion of
relevant statistical data;13
g. The compliance level of a trade sector; and
h. Non-renewal of Importer’s customs accreditation.
5.2.2. For this purpose, the Management Information System and

Technology Group (MISTG) shall design and establish a
computer-aided risk management system, to be approved by the
Commissioner, that will facilitate the risk assessment and conduct
of audit.
5.2.3. Customs brokers and Importer’s duly authorized agents may be

audited to validate audits of their Importer clients and fill in
information gaps revealed during an audit of their Importer
clients. 14
5.3. Conduct of Post Clearance Audit.15
5.3.1. The Post Clearance Audit Group (PCAG) shall prepare a set of post
clearance audit procedures, for approval by the Commissioner to
strictly govern the audit system and procedure as well as the
conduct of the audit examination itself to achieve the highest level
of objectivity, fairness, efficiency and transparency. The
guidelines, whenever applicable, shall include the following
procedural/operational concerns:
a. Profiling/Information Analysis – PCAG shall perform risk

profiling analysis activities on the Importers based on other
information and documents from the various offices of the
Bureau. This includes data gathering and evaluation of import
and export operations.
b. Audit Notification – The Commissioner shall issue an Audit

Notification Letter (ANL) to the company identified for audit.
The ANL shall contain the name/s of the authorized customs
officer/s to perform post clearance audit and is subject to a
30 day validity for service to the Importer.
c. Audit Plan – The audit team shall prepare a general audit

plan to fit the circumstances of the audited company with the
13
cf CAO No. 4-2004, Section IV.C.
14
cf CAO No. 4-2004, Section IV.C.2.
15
cf CAO No. 4-2004, Section IV.D.
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end view of achieving the specific audit objectives in the most

expeditious and transparent manner.
d. Pre-Audit Conference – Before the start of the audit, the

audit team shall meet with the importer on a pre-arranged
schedule to discuss all matters pertaining to the conduct of
the audit. The following shall be covered during the pre-audit
conference:
i. Authority of the auditors to conduct the audit;

ii. Scope and duration of the audit;
iii. Written designation of officer or staff of the importer
authorized to provide information and answer
queries of the auditors;
iv. Work area designated for the auditors;
v. Access to premises of the importer;
vi. Documents to be examined;
vii. Certified copies of documents to be provided to the
auditors;
viii. Designation and authority of the certifying officer of
the company;
ix. Conduct of walk-through of the systems relevant to
importation.
e. Conduct of Audit Proper – The audit proper shall

commence on the date when the audit team actually
conducts examination, inspection, verification and
investigation of accounting and financial records and goods
declaration and other records mentioned in Section 4.5. of
this CAO.
f. Conduct of exit conference. – When the auditors have

performed compliance audit and have gathered all
documents relevant to the investigation or inquiry, the
audit team shall hold an exit conference with the importer
to discuss the following matters:
i. Turn over of all original documents provided to the

auditors during the audit;
ii. Schedule of providing the importer with the
management letter;
iii. Response of the importer to the management letter;
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iv. Possibility of negligence or fraud to be communicated

to the importer;
v. Duty of the importer to provide further documents and
testimony when summoned by the Commissioner in
relation to any negligence or fraud that may be
discovered by the audit review team;
vi. Issuance of the final audit report.
g. Audit Reporting – The audit team shall prepare and

submit the Final Audit Report and Recommendation
(FARR) to the Commissioner of Customs for approval and
issuance of Demand Letter. The Bureau shall furnish the
Bureau of Internal Revenue (BIR) and the Department of
Finance (DOF) a copy of the FARR within thirty (30) days
from the issuance thereof.
h. Audit Monitoring and Recordkeeping – PCAG shall,

with the assistance of the Management Information System
and Technology Group, establish a secure electronic system
of maintaining audit reports and records. PCAG shall
develop an internal monitoring system to ensure that all
tasks related to audit operations are completed and on time
and that approved audit recommendations are properly
implemented.
5.3.2. The conduct of post clearance audit shall depend on the yearly
Post Clearance Audit (PCA) program of the PCAG. The audit may
be divided into stages or may have varying scopes. Initially, the
Importer shall be required to produce for examination documents
enumerated in Sections 4.5.1, 4.5.2 and 4.5.3. The audit may be
expanded to cover documents enumerated in Section 4.5.4, 4.5.5,
4.5.6 and 4.5.7.
5.3.3. Nothing in this section shall be construed as restricting or calling

into question the rights of the Bureau to satisfy itself as to the truth
or accuracy of any statement, document or declaration presented
for customs valuation purposes, and as may be necessary for the
purpose of collecting the proper duties and taxes.
5.4. Access to Records.16
5.4.1. Any authorized Bureau personnel under PCAG shall be given by the
Importer and customs broker full and free access to the premises
where the records are kept, or be provided with full and free access
16
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to a cloud based data-room, to conduct audit examination,

inspection, verification and investigation of records relevant to such
investigation and inquiry, such as but not limited to the importer’s:
a. Document flow;
b. Financial flow;
c. Goods inventory; and
d. Other business processes necessary or relevant in determining
the adequacy and integrity of the manual or electronic system
or systems by which such records are created and stored and
to ensure compliance with customs laws and existing rules and
regulations, particularly in relation to customs valuation, tariff
classification and country of origin with the end in view of
collecting the proper duties and taxes.
In addition, the authorized customs officer may require the

importer and customs broker to make certified copies of any such
documents or extracts thereof.
A copy of any document certified by or on behalf of the importer is

admissible in evidence in all courts as if it were the original copy.
5.4.2. A customs officer is not entitled to enter the premises in this

section unless, before so doing, the officer produces to the person
occupying or apparently in charge of the premises written
evidence of the fact of being authorized which shall be the
certified true copy of the ANL. The person occupying or apparently
in charge of the premises entered by an officer must provide the
officer with all reasonable facilities and assistance for the effective
exercise of the officer’s authority under this section.
5.5. Document in Foreign Language. Where a document in a foreign

language is presented to a customs officer in relation to the carrying out of
any duty or the exercise of any power of the Bureau of Customs, said
document must be accompanied with a translation in English, certified
correct under oath by a translator accredited by the Department of Foreign
Affairs or by a foreign embassy.17
5.6. Power of Commissioner to Obtain Information.
5.6.1. Submission of information related to importation. Pursuant

to the power of the commissioner to obtain from any person any
information related to importations such as costs and volume of
17
cf CAO No. 4-2004, Section IV.A.5.
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production, receipts or sales and gross income of taxpayers, all

importers, whether selected to be the subject of a post clearance
audit or investigation or not and without need of summons from
the Commissioner, shall submit on a quarterly basis the following
documents and information:
a. For trading concerns:
i. Itemized list of imported goods including tariff

classification, itemized cost, taxes and duties paid;
ii. Sales report of imported goods, including list of buyers,
quantities sold per buyer with reference to sales
invoices;
iii. Report of gross income from importations;
b. For manufacturing concerns:
i. Itemized list of imported goods including tariff

classification, itemized cost, taxes and duties paid;
ii. Report of imported materials used in production;
iii. Production report;
iv. Sales report;
v. Gross income from imported raw materials;
5.6.2. Request for information from government agencies and

offices. The Commissioner may request from any office or officer
of the national and local governments, government agencies and
instrumentalities, including the Bangko Sentral ng Pilipinas (BSP)
and government-owned or -controlled corporations (GOCCs),
information related to the importations and transactions covering
the imported goods including the names, addresses, and financial
statements of corporations, regional operating headquarters of
multinational companies, joint accounts, associations, joint
ventures or consortia and registered partnerships, and their
members, whose business operations or activities are directly or
indirectly involved in the importation or exportation of imported
goods or products manufactured from imported component
materials.
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The Commissioner shall enter into a Memorandum of Agreement

with the concerned agencies and government offices to define the
coordination between the Bureau and the concerned agency or
office, how the post clearance auditors can have access to
information held by the concerned agency or office, and the
regularity of submission of information to the Bureau for the
effective implementation of the post clearance audit.
5.6.3. Power to obtain information from banks and other
financial institutions. The Commissioner may obtain
information from banks or other financial institutions on
commercial documents and records pertaining specifically to
payments relevant to import transaction. This power of the
Commissioner shall not be construed as granting the
Commissioner the authority to inquire into bank deposits of
importers or their agents.
5.7. Result of the Completion of Audit on the Goods Declaration. After the Post
Clearance Audit is completed, the affected goods declaration may be altered or
modified to conform to the findings.18
5.8. Administrative and Criminal Offenses.
5.8.1. Failure to Keep Records. Any person who fails to keep and
maintain the prescribed records required to be kept and
maintained in this CAO shall be subject to the following:
a. Suspension or cancellation of accreditation as Importer with

the Bureau;19
b. Surcharge of twenty percent (20%) on the dutiable value of
the goods which is the subject of the importation for which no
records were kept and maintained;20
c. Hold delivery or release of subsequent imported articles to
answer for the fine and any revised assessment;21
d. Criminal prosecution punishable with imprisonment of not less
than three (3) years and one (1) day but not more than six (6)
years, and/or a fine of one million pesos (PhP1,000,000.00);22
and
18
cf CMTA, Title IV, Chapter3, Section 427
19
cf CMO No. 11-2014, Section 8
20
21
cf CMTA, Title X, Section 1002 and Title XIV, Chapter 1, Section 1427
22
cf CMTA, Title XIV, Chapter 1, Section 1427
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e. Waiver of the right to contest the results of the audit based on

records kept by the Bureau.23
5.8.2. Failure or Refusal to Give Full and Free Access. Any person
who denies an authorized customs officer full and free access to
the records required to be kept and maintained as prescribed in
this CAO shall be subject to the following:
a. Punishment for contempt, for contumacy or refusal from the

proper court having criminal jurisdiction;
b. Re-assessment of the importations subject of audit applying
the correct valuation method, tariff classification, quantity
and/or country of origin, as applicable, based on available
data, the declared transaction value being presumed
inaccurate;24
c. Suspension or cancellation of accreditation as an importer with
the Bureau;25
d. Surcharge of twenty percent (20%) on the dutiable value of
the goods which is the subject of the importation for which no
records were kept and maintained;26
e. Hold delivery or release of subsequent imported articles to
answer for the fine and any revised assessment;27 and
f. Criminal prosecution punishable with imprisonment of not less
than three (3) years and one (1) day but not more than six (6)
years, and/or a fine of one million pesos (PhP1,000,000.00).28
5.8.3 Failure to Pay Correct Duties and Taxes on Imported

Goods. Any person who, after being subjected to post clearance
audit and examination, is found to have incurred deficiencies in
duties and taxes paid for imported goods, shall be penalized
according to two (2) degrees of culpability, subject to any
mitigating, aggravating or extraordinary factors that are clearly
established by available evidence as described hereunder: 29
a. Negligence – When a deficiency results from an offender's

failure, through an act or acts of omission or commission, to
23
24
25
cf CMO No. 11-2014, Section 8.c.
26
27
cf CMTA, Title X, Section 1002 and Title XIV, Chapter 1, Section 1427
28
cf CMTA, Title XIV, Chapter 1, Section 1427
29
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exercise reasonable care and competence in ensuring that a

statement made is correct, the offender shall be charged for
committing negligence, and, if found guilty shall be penalized
with a fine equivalent to one hundred twenty five percent
(125%) of the revenue loss.
Provided, That subject to Section 108, Chapter 2, Title I of the

CMTA, a penalty of ten percent (10%) of the revenue loss
shall be imposed on an Inadvertent Error amounting to simple
Negligence.
b. Fraud - When the material false statement or act in

connection with the transaction was committed or omitted
knowingly, voluntarily and intentionally, as established by clear
and convincing evidence, the offender who is charged for
committing fraud and is found guilty thereof, shall be
penalized with a fine equivalent to six (6) times of the revenue
loss and/or imprisonment of not less than two (2) years, but
not more than eight (8) years.
5.8.4. Interest on Unpaid Duties, Taxes, Other Charges and Fine

or Penalty. Unpaid duties, taxes and other charges, shall incur
legal interest of twenty percent (20%) per annum computed
fifteen (15) days from the time the final assessment becomes due
and demandable until final payment.30
5.8.5 Remedies. The importer adversely affected by the assessment

issued by the PCAG and approved by the Commissioner
(approved FARR) may file a request for reconsideration to the
Commissioner within fifteen (15) days from receipt. When said
request is denied by the Commissioner, the Importer may appeal
the same to the Court of Tax Appeals (CTA) within thirty (30)
days from receipt of the adverse ruling or decision of the
Commissioner.31
Section 6.Prior Disclosure Program.
6.1 Who may avail of the Prior Disclosure Program.
6.1.1. Any Importer without waiting for the issuance of an ANL, may avail
of the PDP;
30
cf CMTA, Title I, Chapter 1, Section 104 and Title IV, Chapter 3, Section 429
31
cf CMTA, Title I, Chapter 2, Section 114 and Title XI, Chapter 1, Section 1104
Page 17 of 25 – CAO No. __________

a. By submitting the duly accomplished application form prescribed

by the Bureau for prior disclosure stating the errors in goods
declaration and tendering payment of the initial estimate of
deficiency duties, taxes and reduced penalties 32, if applicable.
b. By paying the balance, if applicable, for the deficiency within a
non-extendible period of sixty (60) calendar days from the filing
of the PDP application form.
6.1.2. Any Importer who has received an ANL may still avail of the PDP
provided the following conditions are satisfied:
a. Before or during the Pre-Audit Conference, the Importer

manifests his intention to avail of the PDP;
b. The Importer submits the duly accomplished application form for
prior disclosure stating the errors in goods declaration and
tenders payment of the initial estimated deficiency duties, taxes
and reduced penalties, if applicable, within thirty (30) calendar
days from the Pre-Audit Conference; and
c. The Importer pays the balance, if applicable, for the deficiency
within a non-extendible period of sixty (60) calendar days from
the filing of the PDP application form.
6.1.3. The Importer who intends to avail of the PDP shall secure the
services of an independent auditor to assure the Bureau that the
voluntary disclosure, in all aspect, has been verified and certified
under oath to be correct, accurate and complete. However, PCAG
shall not be bound by the findings of the independent auditor
when PCAG finds that there are additional payment due from the
Importer as a result of its review.
6.2. Exclusions from the PDP. The following shall not be qualified for the
PDP:
6.2.1. Goods declaration which are the subject of pending case with any
other customs office;
32
cf 19 U.S. Customs 1592
Page 18 of 25 – CAO No. __________

6.2.2. Goods declaration which are covered by cases already filed and
pending in courts; and
6.2.3. Goods declaration involving Fraud as defined under Section

5.8.3.b. of this CAO.
6.3. Benefit of the Program. An approved applicant of the PDP shall be

subject to a reduced penalty of ten percent (10%) of the deficiency duties
and taxes.
6.4. Verification and Action on the Application for PDP.
6.4.1. After the receipt of the PDP application form, initial payment and
other supporting documents, the PCAG shall verify if the
application is complete. If incomplete, PCAG shall require the
submission of additional relevant documents.
6.4.2. In relation to the specific goods declaration subject of the prior
disclosure application, when there are preliminary findings of
Fraud or that there are other material inaccuracies, mistakes or
errors in the entry declaration or outright violations committed
that are not the subject of the disclosure but has an adverse
impact on government revenues, PCAG shall recommend the
conduct of formal and full audit.
6.4.3. In all cases, the tender of payment shall be accepted by the
Bureau to be applied to the deficiencies in duties and taxes as
voluntarily disclosed regardless of whether the prior disclosure
application is finally approved or denied by the Commissioner.
6.5. Interest on Unpaid Duties and Taxes. The deficiency duties and taxes
on the goods declarations and customs issues disclosed shall incur a legal
interest of twenty percent (20%) per annum computed fifteen (15) days
from the time the final assessment becomes due and demandable until
final payment.33
Section 7.Civil Remedies for the Collection of Duties, Taxes, Fines,

Surcharges, Interests, and Other Charges.34
33
cf CMTA, Title I, Chapter 1, Section 104 and Title IV, Chapter 3, Section 429
34
cf CMTA, Title XI, Chapter 8, Sections 1132, 1133 and 1134
Page 19 of 25 – CAO No. __________

7.1. Remedies for the Collection of Duties, Taxes, Fines, Surcharges,

Interests and Other Charges. The civil remedies of the Bureau for the
collection of import duties, taxes, fees, or charges resulting from the
conduct of a post clearance audit shall be obtained by:
7.1.1. Distraint of goods, chattels, or effects, and other personal property

of whatever character, including stocks and other securities, debts,
credits, bank accounts, and interest in and rights to personal
property, and by levy upon real property and interest in rights to
real property; and
7.1.2. By civil or criminal action.
Either or both of these remedies may be pursued at the discretion of the

Bureau: Provided, That the remedies of distraint and levy shall not be
allowed when the amount of duties and taxes involved is not more than Ten
Thousand Pesos (P10,000.00).
The Bureau shall advance the amounts needed to defray costs of collection
by means of civil or criminal action, including the preservation or
transportation of personal property distrained and the advertisement and
sale thereof, as well as of real property and improvements thereon.
7.2. Constructive Distraint of the Property.
To safeguard the interest of the government, the Commissioner may place

under constructive distraint the property of a delinquent importer who, in
the opinion of the Commissioner, is retiring from any business subject to
duty and tax, or is intending to leave the Philippines, or to remove the
property therefrom, or to hide or conceal the property, or to perform any
act tending to obstruct the proceedings for collecting the duty and tax
due, or which may be due.
The constructive distraint of personal property shall be effected by

requiring the importer or any person in possession or control of such
property to sign a receipt covering the property, to obligate to preserve
the distrained property on the state and condition at the time of the
government’s seizure of the same, and not to dispose of the same in any
manner whatsoever, without the express authority of the Commissioner.
In case the importer or the person in possession and control of the

property sought to be placed under constructive distraint refuses or fails
to sign the receipt herein referred to, the customs officer effecting the
constructive distraint shall proceed to prepare a list of such property and,
Page 20 of 25 – CAO No. __________

in the presence of two (2) witnesses, leave a copy thereof in the premises
where the property distrained is located, after which the said property
shall be deemed to have been placed under constructive distraint.
7.3. Summary Remedies.
7.3.1. Distraint of Personal Property.
Upon the failure of the person owing any delinquent duty, tax,
and other charges to pay at the time required, the Commissioner
shall seize and distraint the goods, chattels or effects, and the
personal property, including stocks and other securities, debts,
credits, bank accounts, and interests in and rights to personal
property of such persons, in sufficient quantity to satisfy the duty,
tax, or other charge and the expenses of the distraint and the
cost of the subsequent sale.
The officer serving the warrant of distraint shall make or cause to

be made an account of the goods, chattels, effects, or other
personal property distrained, a copy of which, signed by the said
officer, shall be left either with the owner or person from whose
possession such goods, chattels, or effects or other personal
property were taken, or at the dwelling or other place of business
of such person and with someone of suitable age and discretion,
to which list shall be added a statement of the sum demanded
and note of the time and place of sale.
Stocks and other securities shall be distrained by serving a copy

of the warrant of distraint upon the importer and upon the
president, manager, treasurer, or other responsible officer of the
corporation, company or association, which issued the said stocks
or securities.
Debts and credits shall be distrained by leaving with the person

owing the debts or having in his possession or under his control
such credits, or with his agent, a copy of the warrant of distraint.
The warrant of distraint shall be sufficient authority to the person
owing the debts or having in his possession or under his control
any credits belonging to the importer to pay to the Commissioner
the amount of such debts of credits.
Bank accounts shall be garnished by serving a warrant of

garnishment upon the importer and upon the president, manager,
treasurer, or other responsible officer of the bank. Upon the
Page 21 of 25 – CAO No. __________

receipt of the warrant of garnishment, the bank shall turn over to

the Commissioner so much of the bank accounts as may be
sufficient to satisfy the claim of the government.
A report on the distraint shall, within ten (10) days from receipt
of the warrant, be submitted by the Commissioner to the
Secretary of Finance: Provided, That the Commissioner shall have
the power to lift such order of distraint subject to the rules and
regulations promulgated pursuant to this CAO.
7.3.2. Levy on Real Property.
After the expiration of the period within which to pay the duty,
tax, and other charges as prescribed in this section, real property
may be levied upon, before, simultaneously, or after the distraint
of personal property belonging to the importer. To this end, the
Commissioner or the duly authorized representative shall prepare
a duly authenticated certificate showing the name of the importer
and the amounts of the duty and tax and penalty due. The
certificate shall operate with the force of a legal execution
throughout the Philippines.
The levy shall be effected by writing upon the certificate a

description of the property on which levy is made. At the same
time, written notice of the levy shall be mailed to or served upon
the register of deeds of the province or city where the property is
located and upon the importer, or if the latter is not in the
Philippines, upon the agent or the manager of the business from
which the liability arose, or if there be none, to the occupant of
the property in question.
In case the warrant of levy on real property is not issued before

or simultaneously with the warrant of distraint on personal
property, and the personal property of the importer is not
sufficient to satisfy the duty and tax due, the Commissioner or a
duly authorized representative shall, within thirty (30) days after
execution of the distraint, proceed with the levy on the real
property of the importer.
Within ten (10) days after receipt of the warrant, a report on any
levy shall be submitted by the levying officer to the
Commissioner: Provided, That the Commissioner may lift such
warrants of levy issued, subject to the rules and regulations
promulgated pursuant this CAO.
Page 22 of 25 – CAO No. __________

Section 8.Periodic Review. Unless otherwise provided, this CAO shall be reviewed
every three (3) years and be amended or revised if necessary.
Section 9.Repealing Clause. CAO Nos. 02-99, 05-2001, 04-2004, 05-2007, 03-2015
and all other Orders, Memoranda, Circulars or parts thereof which are
inconsistent with this CAO are hereby deemed repealed and/or modified
accordingly.
Section 10.Separability Clause. If any part of this CAO is declared unconstitutional

or contrary to existing laws, the other parts not so declared shall remain
in full force and effect.
Section 11.Effectivity. This CAO shall take effect fifteen (15) days after its
publication at the Official Gazette or a newspaper of national circulation.
The Office of National Administrative Register (ONAR) of the UP Law

center shall be provided three (3) certified copies of this CAO.
NICANOR E. FAELDON
Commissioner
Approved:
CARLOS G. DOMINGUEZ III

Secretary
Page 23 of 25 – CAO No. __________

Informational Section.
1. History.
● CAO No. 5-2001 - Implementing Republic Act 9135: An Act Amending certain
provisions of Presidential Decree No. 1464, Otherwise known as the Tariff and
Customs Code of the Philippines, as amended (Customs Code), and for other
purposes. Implementing the WTO Valuation System and the recordkeeping and
post entry audit systems in order to facilitate importation and protect
government revenue at the same time. This CAO was approved on November
16, 2001.
● CAO No. 4-2004 – Amendment to CAO 5-2001 (Implementing Republic Act No.
9135: An Act amending certain provisions of Presidential Decree No. 1464,
Otherwise known as the Tariff and Customs Code of the Philippines, as amended
(Customs Code), and for other purposes)
2. Related Policies.
● E.O. No.160 – Creating the Post Entry Audit Group in the Bureau of Customs
● CMO No.1-2002 – Procedure in the Determination of Administrative Liability and
the Imposition of Administrative Fines for (a) Failure to keep records; (b) Failure
and/or Refusal to give full and free access; and (c) Failure to pay correct duties
and taxes on imported goods.
● CMO No.2-2002 – Recordkeeping and Post Entry Audit Guidelines
● CAO No.5-2007 – Voluntary Disclosure Program of the Bureau
● CMO No.18-2007 – Rules and regulations implementing the Customs Voluntary
Disclosure Program pursuant to CAO 5-2007
Page 24 of 25 – CAO No. __________

● CMO No. 16-2010 – Rules and regulations to implement CAO 4-2004 more
particularly on Dutiable Value
● CMO No. 11-2014 – Revised Guidelines for Registration of Importers and
Customs Brokers with the Bureau of Customs pursuant to DOF Department Order
No. 33-2014
3. Webpage, Forms, Handbooks and other References.

● Audit Notification Letter
● List of Documentary Requirements for Post Clearance Audit
● PCAG General Customs Questionnaire
● Voluntary Disclosure Form
Page 25 of 25 – CAO No. __________

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CMTA_CAO_Draft_DOF_Reviewed_Post Clearance Audit_2016-09.

CUSTOMS ADMINISTRATIVE ORDER (CAO)

SUBJECT: POST CLEARANCE AUDIT AND PRIOR DISCLOSURE PROGRAM

2.2. To implement the post clearance audit under a regime of informed

Page 1 of 25 – CAO No. __________

the adverse consequences of non-compliance with customs rules and

2.4. To promote compliance with customs laws and regulations by providing a

2.6. To generate additional customs revenues with least administrative cost to

Section 3.Definition of Terms.

3.1. Importer shall include the following:

3.1.1. Importer-of-record or consignee, owner or declarant, or a party

a. Imports goods into the Philippines or withdraws admitted goods

3.1.2. An agent of any party described in Section 3.1 of this CAO;

3.1.3. A person whose activities require the filing of a goods declaration;

3.1.4. A person ordering imported goods from a local importer or supplier

Page 2 of 25 – CAO No. __________

3.2. Customs Clearance- refers to the completion of customs and other

3.3. Inadvertent Error - shall mean a mechanical, electronic or clerical error

3.4. Prior Disclosure Program – is a program based on international best

3.6. Fraud – commission or omission of any act resulting in material false

Page 3 of 25 – CAO No. __________

3.7. Negligence – failure to exercise reasonable care and competence, through

3.8. Misdeclaration – refers to a false, untruthful, erroneous, or inaccurate

3.9. Misclassification – refers to insufficient or wrong description of the goods

3.10.Undervaluation – refers to a declared value that is lower than the correct

Section 4.General Provisions.

4.1.1. Articles of incorporation;

a. Incorporators and board of directors;

4.1.3. Key importations;

4.1.4. Importation privileges enjoyed;

4.1.5. Record of Violations and Penalties;

Page 4 of 25 – CAO No. __________

4.1.6. Risk categories;

4.1.7. Audit Reports; and8

4.2. Entities required to maintain and keep records.

4.2.1. Importers. - All importers, including those mentioned in the

4.2.3. Locators. - Locators are required to keep records of all its

4.3.2. For conducting audit examination, inspection, verification and/or

Page 5 of 25 – CAO No. __________

the adequacy and integrity of the manual or electronic system or

4.3.3. For collecting the proper duties and taxes.

4.5. Records Required to be Kept. The following records are required to be

4.5.1. Company or entity structure including the following to the extent

a. Articles of incorporation, articles of partnership, registration

Page 6 of 25 – CAO No. __________

m. Permits and licenses.

4.5.3. Shipping, importation, exportation and transportation

Page 7 of 25 – CAO No. __________

n. Goods tally records;

4.5.4. Manufacturing, stock and resale documentation including the

a. Inward goods register/receipts journal;

4.5.5. The following bank documents, financial statements and other

a. Cash receipts and disbursements books;

Page 8 of 25 – CAO No. __________

d. Bank reconciliation records.

4.5.7. Whenever applicable, papers, books, registers, discs, films, tapes,

Section 5.Post Clearance Audit.

5.2. Selection Criteria.

5.2.1. Post clearance audit of Importers shall be undertaken when firms