In Opiniano v. People, the Supreme Court acquitted a customs broker charged with violating Section 3602 of the Tariff and Customs Code of the Philippines (TCCP), emphasizing that mere misdeclaration in import documents is insufficient for conviction. The prosecution must prove beyond reasonable doubt that the broker acted with the specific intent to evade taxes. This decision clarifies the responsibility of customs brokers and highlights the importance of proving intent in customs fraud cases, protecting brokers from liability based solely on documentary errors when they relied on information provided by importers, and the intent to defraud the government was not proven.

When Good Faith Meets Import Declarations: Can a Customs Broker Be Held Liable?

The case revolves around an importation of wheat flour by Aiko Shine Fabric, for which Danilo Opiniano, a licensed customs broker, facilitated the entry. The Bureau of Customs (BOC) found a discrepancy between the declared weight of the shipment (40,000 kgs) and the actual weight (115,000 kgs). This led to charges against Opiniano and the importer, Elenor Tan, for violating Section 3602 of the TCCP, which penalizes fraudulent practices against customs revenue. The core legal question is whether Opiniano, as the customs broker, could be held criminally liable for the misdeclaration, even if he relied on the documents provided by the importer, and there was no proof that he had the intent to defraud the government.

Section 3602 of the TCCP states:

SECTION 3602. Various Fraudulent Practices Against Customs Revenue. — Any person who makes or attempts to make any entry of imported or exported article by means of any false or fraudulent invoice, declaration, affidavit, letter, paper or by any means of any false statement, written or verbal, or by any means of any false or fraudulent practice whatsoever, or knowingly effects any entry of goods, wares or merchandise, at less than true weight or measures thereof or upon a false classification as to quality or value, or by the payment of less than the amount legally due, or knowingly and willfully files any false or fraudulent entry or claim for the payment of drawback or refund of duties upon the exportation of merchandise, or makes or files any affidavit abstract, record, certificate or other document, with a view to securing the payment to himself or others of any drawback, allowance, or refund of duties on the exportation of merchandise, greater than that legally due thereon, or who shall be guilty of any willful act or omission, shall, for each offense, be punished in accordance with the penalties prescribed in the preceding section.

The elements of a violation of Section 3602 are: (1) entry of imported or exported articles; (2) entry made by false or fraudulent means; and (3) intent to avoid payment of taxes. The first two elements were not disputed in this case, with the focus being on whether Opiniano possessed the requisite intent to evade taxes. It’s not sufficient to merely show a discrepancy in the import documents; the prosecution must prove that Opiniano acted deliberately to avoid tax payment.

The Supreme Court underscored that intent, being a state of mind, must be inferred from overt acts. The lower courts pointed to Opiniano’s failure to verify the information in the commercial documents and his request for the tentative release of the goods, rather than a recomputation of taxes, as evidence of his intent. However, the Supreme Court found these facts insufficient to establish guilt beyond reasonable doubt.

The Court cited Remigio v. Sandiganbayan, which held that “[a] customs broker is not required to go beyond the documents presented to him in filing an entry on the basis of such documents.” The documents that were the bases for filing the import entry are bill of lading, invoice, packing list, letter of credit, the import entry declaration and the Central Bank Release Certificate. This principle acknowledges the customs broker’s reliance on the importer’s documentation.

The Customs Brokers Act of 2004 (RA 9280), applicable at the time of the case, further clarifies this point. Section 27 states:

SECTION 27. Acts Constituting the Practice of Customs Brokers Profession. — Any single act or transaction embraced within the provision of Section 6 hereof shall constitute an act of engaging in the practice of customs broker profession. Import and export entry declarations shall be signed only by a customs broker under oath based on the covering documents submitted by the importers. (Emphasis supplied)

This provision limits the customs broker’s liability to the accuracy of information based on the documents provided by the importer. The IEIRD declaration certifies that the information is true and correct “to the best of our knowledge and belief,” which is understood to be based on the importer’s submissions. Furthermore, Section 1301 of the TCCP indicates that any prima facie knowledge of illegality lies with the importer, not the customs broker. Given all of these, in cases of intentional misdeclarations punished under Section 3602 of the TCCP, customs brokers will be criminally liable only if they are found to have personally and knowingly participated in the misdeclaration or undervaluation, or they acted in conspiracy with the consignee or importer.

Moreover, the Supreme Court emphasized that there was no conspiracy between Opiniano and the importer. Without a finding of conspiracy or direct participation in the misdeclaration with the intent to evade taxes, Opiniano could not be held liable. The Court also noted that requesting the tentative release of the shipment was a legitimate act to avoid additional charges and wastage, sanctioned by Section 2301 of the TCCP. It provides a legal remedy, following which cannot be the basis of bad faith.

In contrast, the prosecution failed to demonstrate any concrete evidence that Opiniano intended to evade taxes. Opiniano credibly explained that after discovering the discrepancy, he informed the importer, who then took over the facilitation of the shipment. This explanation, coupled with the lack of evidence of intent, created reasonable doubt as to Opiniano’s guilt, leading to his acquittal.

FAQs

What was the key issue in this case?	The key issue was whether a customs broker could be convicted for fraudulent practices against customs revenue under Section 3602 of the TCCP based on a misdeclaration in import documents, without proof of intent to evade taxes.
What is Section 3602 of the Tariff and Customs Code of the Philippines?	Section 3602 penalizes fraudulent practices against customs revenue, such as making false declarations or engaging in fraudulent practices to avoid paying the correct duties and taxes on imported goods.
What is required to prove a violation of Section 3602?	To prove a violation of Section 3602, the prosecution must establish that there was an entry of imported goods, the entry was made through false or fraudulent means, and there was an intent to avoid payment of taxes.
What was the court’s ruling in this case?	The Supreme Court acquitted the customs broker, ruling that the prosecution failed to prove beyond reasonable doubt that he had the specific intent to evade taxes, which is a necessary element for conviction under Section 3602.
What is the responsibility of a customs broker in import declarations?	A customs broker is responsible for ensuring that import declarations are accurate based on the documents provided by the importer. However, they are not required to go beyond those documents unless there is evidence of their direct participation in the fraud.
Why was the customs broker acquitted in this case?	The customs broker was acquitted because the prosecution failed to prove that he had the specific intent to evade taxes, a necessary element for conviction under Section 3602 of the TCCP. The evidence did not show that he knowingly participated in the misdeclaration or acted in conspiracy with the importer to defraud the government.
What is the effect of the acquittal of the co-accused importer?	The acquittal of the co-accused importer did not automatically lead to the acquittal of the customs broker, as the court assessed the evidence against each accused separately. The lack of conspiracy did not eliminate the requirement for proving the broker’s individual intent.
What should a customs broker do if they discover a discrepancy in import documents?	If a customs broker discovers a discrepancy in import documents, they should immediately inform the importer and follow their instructions, as an agent must act in accordance with the principal’s directions.

This case underscores the importance of proving intent in customs fraud cases and offers protection to customs brokers who rely on documentation provided by importers. It serves as a reminder that the prosecution must meet the high burden of proof to establish criminal liability, especially when the offense involves intent as a key element.

For inquiries regarding the application of this ruling to specific circumstances, please contact ASG Law through contact or via email at frontdesk@asglawpartners.com.

Disclaimer: This analysis is provided for informational purposes only and does not constitute legal advice. For specific legal guidance tailored to your situation, please consult with a qualified attorney.
Source: DANILO L. OPINIANO v. PEOPLE, G.R. No. 243517, December 05, 2022