The Supreme Court has ruled that an importer cannot be held criminally liable for false declarations made by their customs broker unless there is proof of conspiracy or direct knowledge and participation in the misdeclaration. This decision underscores the importance of proving intent and direct involvement in fraudulent practices to secure a conviction under the Tariff and Customs Code. This protects importers who act in good faith, relying on the expertise of licensed brokers, from facing criminal charges based solely on discrepancies in import declarations.

When Honest Reliance Meets Customs Regulations: Who’s Responsible for Import Declarations?

In Alvin Mercado v. People of the Philippines, the central question revolved around whether an importer could be held criminally liable for the actions of their customs broker. Alvin Mercado was charged with violating Section 3602 of the Tariff and Customs Code of the Philippines (TCCP) for allegedly making a false declaration regarding the contents of a shipment. The prosecution argued that Mercado, as the consignee, was responsible for the accuracy of the import declaration, even though it was prepared and filed by his customs broker, Rolando Saganay. Mercado, however, maintained that he had relied in good faith on Saganay’s expertise and had no intention of defrauding the government.

The case hinged on the interpretation of Section 3602 of the TCCP, which penalizes various fraudulent practices against customs revenue. This section lists specific acts, including making false declarations to avoid paying the correct duties and taxes. The information filed against Mercado alleged that he had made a false declaration by stating that the shipment contained “personal effects of no commercial value,” when it actually contained general merchandise in commercial quantities. This, the prosecution argued, was done to pay less than the amount legally due to the government.

To understand the legal basis for the charge, it is essential to examine the relevant provisions of the TCCP. Section 2503 addresses undervaluation, misclassification, and misdeclaration in import entries. It states:

Section 2503.Undervaluation, Misclassification and Misdeclaralion in Entry. – When the dutiable value of the imported articles shall be so declared and entered that the duties, based on the declaration of the importer on the face of the entry, would be less by ten percent (10%) than should be legally collected…When the undervaluation, misdescription, misclassification or misdeclaration in the import entry is intentional, the importer shall be subject to the penal provision under Section 3602 of this Code.

Section 3602 further defines fraudulent practices against customs revenue. It provides:

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…shall, for each offence, be punished in accordance with the penalties prescribed in the preceding section.

The Supreme Court, in its analysis, emphasized that the prosecution had to prove beyond reasonable doubt that Mercado had made the false declaration with the intent to avoid paying taxes. The Court highlighted that the information specifically charged Mercado with making an entry by means of a false and fraudulent invoice and declaration, which falls under the first form of fraudulent practice punished under Section 3602 of the TCCP. The elements to be established for conviction were: (1) entry of imported articles; (2) the entry was made by means of a false or fraudulent document; and (3) intent to avoid payment of taxes.

The Court acknowledged that the first element, the entry of imported articles, was undisputed. However, it found that the prosecution failed to establish the second and third elements beyond reasonable doubt. While there was a discrepancy between the declared contents and the actual contents of the shipment, the prosecution did not provide sufficient evidence to prove that Mercado had directly participated in or had knowledge of the false declaration. Mercado consistently maintained that he relied on his customs broker, Saganay, to prepare and file the import documents.

The Office of the Solicitor General (OSG) argued that Saganay’s declaration as Mercado’s agent-broker bound Mercado as the consignee. However, the Supreme Court rejected this argument, stating that the only basis to hold Mercado criminally liable for Saganay’s declaration would be if they had acted in conspiracy. The Court emphasized that the information did not charge Saganay as a co-conspirator, nor did it allege that Saganay was an accomplice. Holding Mercado criminally responsible for Saganay’s actions, without such allegations and proof, would violate Mercado’s constitutional right to be informed of the charges against him.

The Supreme Court further explained that the principle of res inter alios acta, as embodied in Section 28, Rule 130 of the Rules of Court, was applicable. This principle states that the rights of a party cannot be prejudiced by the act, declaration, or omission of another, except as otherwise provided. Therefore, the actions of Saganay could not automatically be attributed to Mercado without proof of conspiracy or direct participation.

Moreover, the Court noted that the import documents, particularly the Informal Import Declaration and Entry (IIDE), showed that only Saganay made the sworn declaration. Mercado’s name and signature were absent from these documents, indicating a lack of direct involvement in their preparation. The Court also considered the testimony of customs officials, who stated that import declarations largely depend on the description of goods provided by the exporter or shipper from a foreign country. This further supported Mercado’s claim that he had relied in good faith on the information provided by his broker.

The Supreme Court found that the prosecution had failed to prove that Mercado had the intent to falsify the import documents in order to avoid the payment of duties and taxes. The Court cited the case of Transglobe International, Inc. v. Court of Appeals, which emphasized that the fraud contemplated by law must be actual and intentional, consisting of deception willfully and deliberately done. In Mercado’s case, there was no evidence to suggest that he had acted with such intent.

The Court also referenced Remigio v. Sandiganbayan, which involved a customs broker. In that case, the Court held that a customs broker is not required to go beyond the documents presented to him in filing an entry. Similarly, in Mercado’s case, the Court found that he had relied on the documents provided to him and had no reason to suspect any falsity.

Ultimately, the Supreme Court acquitted Alvin Mercado, emphasizing the importance of proving guilt beyond reasonable doubt and reminding that the primary objective of criminal law is to do justice, not merely to secure convictions. The Court reiterated that conviction must be based on the strength of the prosecution’s evidence, not on the weakness of the defense. Since the prosecution failed to establish Mercado’s direct involvement and intent to defraud, the Court had no choice but to acquit him.

FAQs

What was the key issue in this case?	The key issue was whether an importer could be held criminally liable for false declarations made by their customs broker without proof of conspiracy or direct involvement.
What is Section 3602 of the Tariff and Customs Code?	Section 3602 penalizes various fraudulent practices against customs revenue, including making false declarations to avoid paying the correct duties and taxes. It requires proof of intent to defraud.
What does ‘res inter alios acta’ mean in this context?	‘Res inter alios acta’ means that the rights of a party cannot be prejudiced by the act, declaration, or omission of another, unless there is a legal basis such as conspiracy or agency.
What did the prosecution fail to prove in this case?	The prosecution failed to prove that Alvin Mercado had direct knowledge of the false declarations or that he acted with the intent to avoid paying the correct duties and taxes.
Why was the customs broker not charged as a co-conspirator?	The customs broker was not charged as a co-conspirator because the information filed against Mercado did not allege conspiracy or any form of complicity.
What is the significance of good faith reliance in this case?	The court considered Mercado’s good faith reliance on his customs broker as a factor in determining whether he had the intent to defraud the government.
What is the standard of proof in criminal cases?	The standard of proof in criminal cases is proof beyond a reasonable doubt, meaning the prosecution must present enough evidence to convince the court that there is no other logical explanation for the facts except that the defendant committed the crime.
Can an importer be automatically held liable for the mistakes of their customs broker?	No, an importer cannot be automatically held liable. There must be evidence of conspiracy, knowledge, or direct participation in the fraudulent act.

This case clarifies the responsibilities of importers and customs brokers in ensuring the accuracy of import declarations. It reinforces the principle that criminal liability requires proof of intent and direct involvement, protecting those who act in good faith from unwarranted prosecution.

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: Alvin Mercado, G.R. No. 167510, July 8, 2015