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CUSTOMS M ODERNIZATION Public Disclosure Authorized H Andbook CUSTOMS M ODERNIZATION Public Disclosure Authorized H andbook # Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized THE WORLD BANK Customs Modernization Handbook Customs Modernization Handbook Editors Luc De Wulf and José B. Sokol THE WORLD BANK Washington, D.C. © 2005 The International Bank for Reconstruction and Development / The World Bank 1818 H Street, NW Washington, DC 20433 Telephone 202-473-1000 Internet www.worldbank.org E-mail feedback @worldbank.org All rights reserved. A publication of the World Bank. 123408070605 The findings, interpretations, and conclusions expressed herein are those of the author(s) and do not necessarily reflect the views of the Board of Executive Directors of the World Bank or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of the World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. Rights and Permissions The material in this work is copyrighted. Copying and/or transmitting portions or all of this work without permission may be a violation of applicable law. The World Bank encourages dissemination of its work and will normally grant permission promptly. For permission to photocopy or reprint any part of this work, please send a request with complete information to the Copyright Clearance Center, Inc., 222 Rosewood Drive, Danvers, MA 01923, USA, telephone 978-750-8400, fax 978-750-4470, www.copyright.com. All other queries on rights and licenses, including subsidiary rights, should be addressed to the Office of the Publisher, World Bank, 1818 H Street NW, Washington, DC 20433, USA, fax 202-522-2422, e-mail [email protected] Photo credits (clockwise): Australian Customs (upper right), Douane Francaise / M. Bonodot © (lower right), Chilean Customs Administration (lower left), Société Générale de Surveillance (upper left and background photo of people), Luc De Wulf (background photo of customs files). Library of Congress Cataloging-in-Publication Data Customs modernization handbook / edited by Luc de Wulf, José B. Sokol. p. cm.—(Trade and development series) Includes bibliographic references and index. ISBN-0-8213-5751-4 (pbk.) 1. Customs administration—Developing countries. I. Wulf, Luc de, 1942- II. Sokol, José B. III. Series. HJ7390.C86 2004 352.4'48'091724—dc22 2004059856 Contents Foreword ix Acknowledgments xi Abbreviations and Acronyms xiii Overview xvii PART I: CROSS-CUTTING ISSUES 1 1 STRATEGY FOR CUSTOMS MODERNIZATION 3 Luc De Wulf 2 HUMAN RESOURCES AND ORGANIZATIONAL ISSUES IN CUSTOMS 31 Luc De Wulf 3 LEGAL FRAMEWORK FOR CUSTOMS OPERATIONS AND ENFORCEMENT ISSUES 51 Kunio Mikuriya 4 INTEGRITY IN CUSTOMS 67 Gerard McLinden 5 MANAGING RISK IN THE CUSTOMS CONTEXT 91 David Widdowson PART II: LESSONS FROM A SELECT SET OF CUSTOMS REFORM INITIATIVES 101 6 POLICY AND OPERATIONAL LESSONS LEARNED FROM EIGHT COUNTRY CASE STUDIES 103 Paul Duran and José B. Sokol 7 TWO DECADES OF WORLD BANK LENDING FOR CUSTOMS REFORM: TRENDS IN PROJECT DESIGN, PROJECT IMPLEMENTATION,AND LESSONS LEARNED 127 Michael Engelschalk and Tuan Minh Le PART III: GUIDELINES ON ISSUES THAT AFFECT CUSTOMS’ OPERATIONAL TRADE FACILITATION 153 8 CUSTOMS VALUATION IN DEVELOPING COUNTRIES AND THE WORLD TRADE ORGANIZATION VALUATION RULES 155 Adrien Goorman and Luc De Wulf 9 RULES OF ORIGIN, TRADE, AND CUSTOMS 183 Paul Brenton and Hiroshi Imagawa 10 DUTY RELIEF AND EXEMPTION CONTROL 215 Adrien Goorman v vi Contents 11 TRANSIT AND THE SPECIAL CASE OF LANDLOCKED COUNTRIES 243 Jean François Arvis 12 THE ROLE OF CUSTOMS IN CARGO SECURITY 265 Luc De Wulf and Omer Matityahu 13 THE ROLE OF INFORMATION TECHNOLOGY IN CUSTOMS MODERNIZATION 285 Luc De Wulf and Gerard McLinden LIST OF BOXES, FIGURES, AND TABLES BOXES 1.1 Morocco Customs Gets Its Staff on Board for the Reform Program 17 1.2 An Example of Regional Leadership: The TTFSE Regional Steering Committee 21 Annex 1.C.1 The Steps to Release Goods From Time of Arrival 25 Annex 1.C.2 The Philippines Time-Release Study: An Example to Follow 26 2.1 Staff Renovation in Bolivian Customs 34 2.2 Denmark: Integration of Customs and Tax Administration 39 2.3 Revenue Targets and Autonomy: Illustrations from Tanzania and Uganda 42 3.1 An Example of Obsolete Customs Legislation 52 3.2 Sample Checklist to Identify Provisions Requiring Amendment or New Legislation under the Revised Kyoto Convention 59 3.3 Morocco’s Adoption of the Convention: A Success Story 60 3.4 Modernization of Customs Legislation in the Russian Federation 65 4.1 Leadership and Commitment: Key Issues and Questions 75 4.2 Regulatory Framework: Key Issues and Questions 76 4.3 Transparency: Key Issues and Questions 77 4.4 Automation: Key Issues and Questions 78 4.5 Modernization of Customs: Key Issues and Questions 79 4.6 Audit and Investigation: Key Issues and Questions 80 4.7 Code of Conduct: Key Issues and Questions 81 4.8 Are Low Salary Levels Really a Factor? 82 4.9 Human Resources: Key Issues and Questions 84 4.10 Morale and Organizational Culture: Key Issues and Questions 85 4.11 Relationship with the Private Sector: Key Issues and Questions 86 4.12 Lessons Learned from Customs Reforms to Control Corrupt Behavior 88 5.1 Managing Risk: Customs Valuation 98 6.1 Implementation of Customs Reform in Mozambique 109 6.2 Information Technology in Turkey 115 6.3 Import Verification in Peru 117 6.4 Customs Cooperation with the Private Sector in Morocco and the Philippines 123 6.5 Addressing Corruption in Uganda’s Independent Revenue Authority 124 7.1 Diagnostic Framework—Three Project-Specific Cases 133 7.2 Inadequacy of Performance Indicators: Project-Specific Cases 136 7.3 Designing a Comprehensive Set of Performance Indicators: The Case of Trade and Transport Facilitation Projects in Southeast Europe 137 7.4 Integrated Approach in Process Management: The Case of the Tunisia Export Development Project 141 7.5 Increased Bank Emphasis on Coordination with Other Donors 142 Contents vii 7.6 Quality of Pre-Project Preparation and Design Matter: Two Project-Specific Cases 146 7.7 What Triggered the Modification of Project Objectives or Components 147 7.8 Implementation Management Issues: The Case of the Senegal Development Management Project 148 8.1 Peru: Import Verification Program 169 8.2 PSI Contract in Madagascar Introduces Targeted and Evolving Verification Services 173 9.1 Example of Restrictive Rules of Origin: The Case of EU Imports of Fish 192 9.2 More Restrictive Rules of Origin: The Case of Clothing Under NAFTA Rules 197 10.1 Duty Relief and Exemption Regimes 216 10.2 The Reform of Duty Relief Regimes in Morocco 221 10.3 Fiji’s Duty Suspension Scheme 222 10.4 The Passbook System in Nepal 223 10.5 The Bangladesh Special Bonded Warehouse Facility 224 10.6 Customs Administration of the Aqaba Export Processing Zone 229 10.7 Thailand’s Move to Open Bond Arrangements 232 10.8 Computer Application for Management of Investment Project Exemptions 237 10.9 Reimbursement of Taxes and Customs Duties on Imported Petroleum Products in Mali 238 11.1 The Genesis of Transit Procedures in the Middle Ages 246 11.2 General Requirements with Respect to Seals 248 11.3 ASYCUDA Customs Operations in Zambia 254 11.4 The SafeTIR 258 11.5 The Unique Consignment Reference Number 259 11.6 TTFSE Indicators 263 12.1 Maritime Security Initiative at Panama Canal Waters 269 13.1 IT System Procurement and Costs: Case Study—Turkey 296 13.2 Morocco Case Study 298 13.3 Customs ICT Deployment Case Study: Turkey 302 13.4 Ghana Gateway Project Case Study 305 13.5 Senegal Case Study 306 FIGURES 1.1 Number of Declarations per Staff per Year in Southeastern Europe, 2002 16 5.1 Facilitation and Control Matrix 92 5.2 Compliance Management Matrix 94 5.3 Risk-Based Compliance Management Pyramid 96 7.1 Institutional Environment Assessment Framework 138 9.1 Regional Trade Agreements in Eastern and Southern Africa 207 11.1 Typical Transit Operation 252 11.2 The Sequence of the TIR Operations 256 13.1 Modern Customs Declaration Processing Environment 292 TABLES Annex 1.A.1 Customs Revenue as a Share of Tax Revenue in Selected Countries, 2001 23 Annex 1.B.1 Collected Tariff Rates for Selected Countries, by World Region, 2001 24 4.1 Customs Functions and Their Vulnerability to Corruption 69 4.2 Strategies to Reduce Corruption in Customs 73 viii Contents 5.1 Compliance Management Styles 95 6.1 Basic Economic Data, 2000 106 6.2 Revenue Performance Before and After Customs Reforms 106 6.3 Revenue Performance Before and After Customs Reforms 120 6.4 Customs Processing Times 121 7.1 Approved Amounts for Customs Components of Technical Assistance Projects, 1982–2002 130 7.2 Distribution of Approved Operations with Customs Component by Project Category, 1982–2002 131 7.3 Pre-Project Diagnostic Analyses in Technical Assistance Projects, 1982–2002 132 7.4 Summary of Objectives 135 7.5 Performance Indicators 136 7.6 Comprehensiveness of Project Design 139 7.7 Summary of Suggested Rating of Outcomes of Customs Activities 143 7.8 Correlation Estimation: A Summary 144 Annex 7.A.1 Distribution of Projects with Customs Components by Region, 1982–2002 149 Annex 8.D.1 PSI Programs Operated by Members of the IFIA PSI Committee 178 9.1 Involvement of Customs in Issuing, Checking, and Providing Information on Preferential Certificates of Origin for Exporters 205 9.2 Resource Implications of Rules of Origin
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