By Renato Palgan
Field Officer, POM Field Office
concurrent, Radiation Safety Officer, XIP
concurrent, Supervisor, MICP, Subic, Clark and Batangas Field Offices
e-mail: renatopalgan@yahoo.com
(A speech delivered during the 13th Biennial Convention of Philippine Association for Radiation Protection (PARP) in Puerto Princesa, Palawan)
I. Introduction
Philippine Association for Radiation Protection officers and members, distinguished guests, ladies and gentlemen, good afternoon.
It is indeed a great privilege for the X-ray Inspection Project to be invited in this national gathering of radiation safety experts, practitioners, professionals, academes and researchers. When we were invited for the first time in this biennial convention two years ago in Cebu City, we were just a mere observers and ordinary participants in that convention but, now, we are somewhat elevated to a higher level and already made as one of the invited speakers on a topic which we have a wide experience and acquired expertise. Perhaps it is now the proper time to make a report before this society of highly respected professionals on radiation safety regarding some important facts and information about the container x-ray scanning system in cargo inspection in the Bureau of Customs after more than two years of its operation.
For sure, we are certainly aware that you are also interested on it as we are because it is an applied concept of radiation technology on container cargoes that has just been introduced into our country’s ports of entry, muchmore, the publicity it generated for the past several months by some national media.
Let me now proceed with my presentation.
II. Background of Container X-ray Inspection Project
On January 30, 2002, former Customs Commissioner Titus Villanueva, with the approval of then Finance Secretary Isidro Camacho, issued Customs Administrative Order No.1-2002, which provides for the use of x-ray machines as an alternative to actual physical examination to speed up the examination of shipments and the movement of cargoes in the Bureau of Customs. As pointed out under the provisions of this Customs issuance, the use of x-ray machine in cargo examination is meant to promote global competitiveness of the country by using modern technology in the examination of cargoes as well as to enhance the enforcement capabilities and collection efforts of the Bureau. Moreover, this order recognizes the need of container x-ray machine to handle the examination and lists down the system specifications of the equipment that the Bureau should acquire.
In May 2006, after almost four years since the issuance of Customs Administrative No.1-2002, the Bureau of Customs, in coordination with the National Economic Development Authority and National Development Company, finally implemented this policy with the signing of a concessional loan agreement with the Peoples Republic of China, through a government to government transaction, to acquire ten x-ray scanners from Nuctech Company, the recommended supplier by the Chinese Government and one of leading manufacturers of container x-ray scanner in the world, under its Non-Intrusive Container Inspections System Project (NCISP) and, on the following year, it acquired another twenty x-ray scanners as part of the Phase II of the Project.
Phase I involves the deployment of ten units of x-ray scanners in the major Customs collection districts, while Phase II engages the placement of additional x-ray scanner in major collection districts as well as in other ports not covered by Phase I of the Project. In all, there are thirty units of x-ray scanners the Bureau had acquired from Nuctech Company and they are distributed according to the volume of container cargo traffic of the port. These are the following recipient ports: Port of Manila, Manila International Container Port, Port of Subic, Port of Clark, Port of Batangas, Port of Cebu, Port of Davao, Port of Cagayan de Oro, Sub-Port of General Santos, and Port of Zamboanga.
When President Gloria Macapagal-Arroyo signed Executive Order No. 592 on December 15, 2006, which imposes the mandatory payment of Container Security Fee in the implementation of the NCISP, the Bureau issued a memorandum creating an x-ray committee to carry out effectively the mandate of the Project.
- The X-ray Scanning Committee
In consonance with the issuance of Executive Order No. 592, Commissioner Napoleon Morales issued Customs Special Order No.1-2007 on January 5, 2007, creating an X-ray Scanning Committee, to ensure the smooth operation of the newly-acquired x-ray equipment. As a transitory body, the committee reported directly to the commissioner and supervised the deployment of x-ray scanners at various ports of entry.
On January 25, 2007, with the issuance of Customs Special Order No.4-2007, establishing the interim guidelines in x-ray scanning operations, the work of the committee was divided into the following cluster groups:
1. Profiling and Evaluation Sub-Committee. It was tasked to gather data and information from other offices relevant to scanning operation.
2. Operation and Maintenance Sub-Committee. It was tasked to handle the x-ray scanning inspection of shipments, including the security and safekeeping of x-ray equipment.
3. Logistics, Support and Administration Sub-Committee. Aside from overseeing the maintenance, procurement, and repairs of x-ray scanners, it also served as the secretariat and legal arm of the Project.
When the X-ray Scanning Committee was organized, I was assigned by the committee to prepare a radiation safety manual of the Bureau of Customs which is a mandatory requirement by the Department of Health before the x-ray scanners can be issued a license to operate. However, it was not at all an easy task. As the designated Radiation Safety Officer of the Bureau of Customs by the Department of Health, I was also in-charge of the processing of documents for the issuance of license to operate an x-ray facility in different ports where the Bureau planned to deploy x-ray scanner and, thus, required me to be present whenever the Department of Health personnel would conduct radiation dose test inside the x-ray facility. And my learning experiences as I performed my responsibility proved to be helpful as I wrote most of the provisions in the safety rules and regulations of what is now popularly known as the Customs Radiation Safety Manual.
- The Birth of X-ray Inspection Project
After the provisional committee had been dissolved, Commissioner Napoleon Morales issued Customs Memorandum Order No. 6-2007 on March 28, 2007, which enumerates the operational guidelines in the conduct of x-ray inspection on containerized shipments and establishes the X-ray Inspection Project (XIP) as a specialized and technical unit that will oversee the administrative and operational control of all x-ray scanning equipment of the Bureau of Customs, including the x-ray scanners for baggage and loose cargoes which were acquired during the administration of then Commissioner Guillermo Parayno. Just like its forerunner units before its creation, the XIP has also been placed under the supervision of the commissioner of customs. At present, the XIP has a total of 30 x-ray scanners for container vans and 12 x-ray scanners for baggage and loose cargoes which are being manned by, more or less, 78 technically-trained officers and personnel who are assigned at different x-ray field offices nationwide.
- Mission
As a tool for enforcement and as an aid for assessment in the Bureau of Customs, the X-ray Inspection Project is guided by the following four missions:
- Revenue Generation
The Project helps increase revenue collections for the government by aiding the Assessment Division in determining the appropriate declaration of items inside the shipment as found on x-ray images for proper valuation and classification of goods by the customs examiners.
- Trade Facilitation
The Project promotes trade facilitation by lessening human intervention and intrusion in the conduct of cargo examination, thereby ensuring the integrity of the shipment upon delivery to its consignees and without unnecessary delay.
- Enforcement of the Tariff and Customs Code and Other Laws
The Project ensures that all prohibited and contraband shipments are seized at the ports of entry and all regulated shipments are covered by appropriate permits or clearances issued by the concerned regulatory government agencies.
- Counter Global Terrorism for International Security
The Project aims to avert any act of terrorism or other serious threats to regional and world peace thru non-intrusive inspection of shipments suspected of containing dangerous and anti-social goods, such as explosives, guns, nuclear materials, hazardous biological chemicals or substances, and weapons of mass destruction.
III. Procedures in X-ray Inspection
Every container x-ray facility follows a prescribed set of procedures suitable to the port of entry it is located. Although they somehow vary on certain operational procedures in order to adapt to certain peculiarities to the ports where it is located, such as the volume of container cargo traffic, the nature of the port whether it is regular port, free port or economic zone, the location and distance of x-ray facility within the Customs zone, the geopolitical and social condition in the region whether it is an ideal place for loading or unloading prohibited and illegal cargoes, like guns, drugs and explosive materials, nevertheless, all Customs container x-ray facilities in the country follow the same theoretical diagram below in conducting x-ray inspection:
Theoretical Framework in X-ray Inspection
In applying this theoretical framework at the Port of Manila X-ray Field Office, for instance, after import entries are filed with ASYCUDA, red-classified entries in the selectivity module are selected for x-ray inspection by the Risk Management Group using some parameters for selection. These “computer-selected” shipments are electronically forwarded to the Entry Processing Unit, Assessment Division, Asian Terminal Incorporated and the X-ray Inspection Project to inform the concerned offices on the shipment which are subject for x-ray inspection. For “manually-selected” shipments, a notification from the X-ray Inspection Project will be forwarded to the Assessment Division, the Enforcement and Security Service, and the Piers and Inspection Division to advise them of the same.
Once the importer or broker is informed that his or her shipment is subject for x-ray, he or she must bring one set of photocopies of import documents to the POM X-ray Field Office for document verification and comparison of the x-ray image with that of the import declaration.
During mage analysis, when the shipments are found to have suspected items, a physical examination will be conducted by the assigned customs examiner in the presence of the representative of the X-ray Inspection Project at the Designated Examination Area or Warehouse 1, depending on the location of the suspected items inside the container van. The usual process of clearing shipments under existing Customs laws, rules and regulations shall be observed until they will be released by POM X-ray Field Office. But for shipments with no suspected items, they will immediately be released after x-ray inspection and upon lifting of the x-ray flag on the computer at the Satellite Office.
The same procedure will be observed in the conduct of x-ray inspection for export shipments, except that there will be no computer selection as well as un-tagging of x-ray flag.
IV. Shipments That Maybe X-rayed
Based on Customs Memorandum Order No.6-2007, the following shipments may be subjected to x-ray inspection: alerted shipments, shipments that cannot be examined by using regular examination procedures, informal entry shipments, consolidation shipments before delivery to consignee’s warehouse, and export shipments.
However, the scope and coverage of shipments that may be x-rayed has been expanded in the succeeding years. On February 20, 2008, Commissioner Napoleon Morales signed an un-numbered memorandum directing the XIP to scan all PEZA-bound shipments before their release to their consignees located at the export processing zones or special economic zones and, on April 30, 2008, Atty. Ma. Lourdes Mangaoang, the Head of the XIP, issued a memorandum addressed to all collection districts in the country with available x-ray scanners in their jurisdictions that all containerized refrigerated shipments shall be subjected to x-ray inspection. And to put an end to illegal exportation or “ghost exportation”, on July 11, 2008, Commissioner Napoleon Morales issued yet another memorandum directing the XIP to scan export shipments, especially those declared as scrap metals, minerals and ores.
V. Technical Features of X-ray Scanner
The mobile and relocatable container x-ray inspection system of the Bureau of Customs has the following technical specifications:
• Area Size Required for the System:----------------------------- 38m x 30m (LxW)
• Scanning Tunnel:-------------------------------------------------- Height: 4.7 m
Width: 3.6 m
• Scanning Mode:---------------------------------------------------- Container vehicle remains standstill
while scanning unit moves
• Scanning Length : ------------------------------------------------- 18 m
• Technical Throughput : ------------------------------------------ 3-5 minutes per container;
25-30 units of 40’ container van per hour
• Maximum Penetration :----------------------------------------- >270 mm steel
• X-ray Dose Per Inspection:-------------------------------------- < 10 uSv
• Maximum Dose Rate on the System Boundary:--------------- < 2.5 uSv / hr.
• Maximum Dose for Operator:----------------------------------- < 1 mSv/ year
• Maximum Dose for Public:-------------------------------------- < 0.1 mSv/ year
• Radiation Monitoring System:----------------------------------- a.) Gamma Source Detector
(Plastic Scintillator)
b.) Neutron Source Detector (3 He)
• Scanning Angles:-------------------------------------------------- 10 degrees (fixed)
• Scanning vehicle:-------------------------------------------------- German-made Volvo Chassis
• Voltage Power:----------------------------------------------------- 380 V
• X-ray Radiation Source ------------------------------------------ 6 MeV
• Number of Detector Pens ---------------------------------------- 576
• Image Acquisition Mode ----------------------------------------- Real Time
• Power Capacity ---------------------------------------------------- 30 KW
V. Radiation Safety Culture Infrastructures
As a duly licensed to operate a linear accelerator by the Department of Health, the customs container x-ray facilities have strictly followed the radiation safety rules and regulations as provided for under the Customs Radiation Safety Manual. All container x-ray scanners have passed the stringent requirements on allowable radiation dose rate as prescribed by international regulating bodies, like the World Health Organization (WHO), International Commission on Radiation Protection (ICRP), and International Atomic Energy Agency (IAEA). The X-ray Inspection Project has also a specialized unit on radiation protection and, since the start of our operation in May 2007, there has been no radiation-related accidents which occurred at any of our x-ray facilities.
The following are just some of the radiation safety infrastructures being implemented by the X-ray Inspection Project to develop a safety culture at the workplace:
1. Only x-ray personnel that have attended trainings on the proper use of x-ray machines and have passed a radiation safety seminar are deployed at the various x-ray facilities in the country.
2. Aside from DOH-recognized Radiation Safety Officer at the national level, the X-ray Inspection Project has a designated Radiation Safety Officer in every x-ray facility who conducts a regular radiation dose test around the x-ray facility every month.
3. Every x-ray personnel has been provided with the Customs Radiation Safety Manual and the Troubleshooting Manual on Most Common Problems of Container X-ray Scanners of the Bureau of Customs to ensure proper dissemination and education on the duties and responsibilities of every x-ray personnel inside the x-ray facility.
4. Every x-ray personnel has been provided with a radiation film badge for individual dose monitoring every two months.
5. The X-ray Inspection Project has obtained radiation safety certifications from the Department of Health, the Nuctech Company Limited, and the Beijing Center for Disease Prevention and Control, attesting that all goods (i.e, food, living animals, films and medical x-ray films, data media for IT equipment, beverage, drugs, flammable and easy exploding chemicals, electronic, cellphone, meat, fish and so on), are safe when subjected to x-ray scanning inspection.
VI. Major Accomplishments
Since the start of our operation in May 2007 up to September this year, the X-ray Inspection Project has been able to apprehend various misdeclared, undeclared and prohibited shipments with a total estimated value of Php 2.1 Billion. And for its contribution to revenue collection, it has effected for the payment of additional duties and taxes worth around Php 10 Million from January to September 2009 alone, coming from suspected shipments after passing through the x-ray machines.
To give you an illustration on the effectiveness of x-ray scanner in the Bureau of Customs, the following shipments were apprehended and issued a Warrant of Seizure and Detention from January to September 2009:
| SEIZED GOODS / ITEMS | DECLARED AS | CONSIGNEE | ESTIMATED VALUE | APPREHENDING X-RAY FIELD OFFICE |
| One (1) unit Sail Boat | PERSONAL EFFECTs | Juvy Sylvester | P47,500 | Port of Cebu |
| One (1) unit Right-hand drive Mazda Van | PERSONAL EFFECTS | Elvie Manabat | P142,500 | Port of Cebu |
| 2 units Completely Built Motorcycles | PERSONAL EFFECTS | Victorino C. Guilles, Jr. Customs Brokerage | P3-Million | POM |
| Polyethylene Laminated Tube | PACKAGING MACHINE PARTS & VACUUM BAGS | Loopex Packaging Product Inc. (Benjamin Suzon) | P1.092-million | POM |
| Aircon Condenser | ALUMINUM SHEETS IN COILS | Tricia Royale Marketing (Merian Misula) | P778,000 | POM |
| Mineral Ores (Not classified) | SCRAP INTEGRATED CIRCUITS | Hung Tat Electronics Co. Ltd. (Razon Jover) | P65,000 | POM |
| Raw materials for Shoe manufacturing, Canvas, Nylon, Drums of Flammable Chemicals | FABRICS | SS Ventures Int’l. (Benjamin Valic) | P636,000 | POM |
| Used Tires | USED DIESEL ENGINES W/ TRANSMISSION & USED VARIOUS TRUCK REPLACEMENT PARTS | Alliance Auto & Truck Rebuilder (Wellcargo Customs Brokerage) | P560,000.00 | POM |
| Sodium Cyanide, Fire Extinguisher, Plastic Buckets of unknown chemicals | HOME APPLIANCES & MISCELLANEOUS ITEMS | Korex Logistics Int’l. Inc. (Dina Anahaw) | P2.951-Million | POM |
| Household goods, construction materials & various articles | BEAN SPROUTS | Philkosa Sea and Air Freight Services (Ronald Manalo) | P500,000.00 | POM |
| 4 Plastic Bags of Powder Paint | RAW MATERIALS FOR LIGHT BULB MANUFACTURING | Global Lightings Philippines Inc. (Ma. Cristina Taguamos) | 5000.00 | POM |
| 1 Unit Safety Vault | FABRICS | Everflow Apparel Philippines Industrial Co. (Richard Dolar) | 24,000.00 | POM |
| Used Tires and Tiles | ASSORTED ELECTRICAL APPLIANCES | Melbeth Enterprises (Henry Villa) | P898,000.00 | POM |
| 1 Unit Nissan Sky Worker (Right-hand drive) | USED TRUCK REPLACEMENT PARTS | C-One Trading | P350,000.00 | Port of Cagayan De Oro |
| 15 Drums Unknown Chemicals | Resins | Universal Harvester Inc | 150,000.00 | POM |
| Assorted ready-to-wear Vests of different sizes | 1,386 CTNS. OF RAYON 44” PRINT (CUTTING WASTES) REMNANTS | Fil-Cel Trading (Ma. Fe C. Anabeza) | P1.4-Million | POM |
| Twelve Containers of Optical Media Manufacturing Materials | MEIKE SINGLE & DOUBLE REPLICATION LINE & PARTS | Kintetsu World Express (Clark) Inc. | P400-Million | MICP |
| One lot of used Electric Motor & Parts | Used Electric Motor & Parts | Pacific Activated Carbon Co., Inc. | 384,000.00 | MICP |
| One Mixed Scrap Metal | Mixed Scrap Metal | Dae Hyun Metal Trading | pending | MICP |
| drums of DOP & unidentified Chemical | PVC Scraps | S & S Industries | 3,303,000.00 | POM |
| 74 drums Unknown Chemicals | Machine Accessories | Lawag Gen. Mdse. | pending | POM |
| 8 drums of ZIC Supervis | Plastic Injection Molding | Cronics, Inc. | 50,000.00 | POM |
| Personal effects | Household wares | Okta Trading | 1,000,000.00 | POM |
| Asstd. Foodstuff (candies) | Toys (non-battery operated) | Solar Sea Marketing | 1,094,087.00 | POM |
| Massager, Mahjong sets & tables | Lamp accessories (Funeral Use) | Coolidge Trading Corp. | 500,000.00 | POM |
| 24 drums PF DOP (Diethelhexyl Phthalate) | PVC Scraps | Asia Global Trading | 100,000.00 | POM |
| Reflective Sheetings & Screw fro Scaffoldings | Galvanized Steel Plates | Mercer TRading | 500,000.00 | POM |
| Resins, Paints, Wires etc. | Relay Parts | 3-way Electrical Supply | 500,000.00 | POM |
| (0ne unit) used RHD 3-door Suzuki Jimny | 14 pkgs. Used Polypail | Yoko Miyazen | pending | Port of Davao |
| 2 boxes asstd. Pyrotechnics Firecrackers | Kitchenwares | High-end Enterprises | 5,000.00 | Port of Cagayan de Oro |
| 6x40 used Trailer Beds/Rear Brake Drum/Tires with rims Constinuation | Used Trailer beds & Replacement Parts/Rear Brake Drum/Rims with Lock | Subic Trak Int’l Inc. | pending | Port of Subic |
| Korean Commodities (Kimchi) | Korean Wines | Hanul Worldwide Inc | 25,000.00 | POM |
| Fabrics And Accessories | Used Aircon Stand Type Compressor, Rice Wine | DO1 Gma Intl Corp | 54,000.00 | POM |
| Drums Unknown Chemicals | Fabrics And Accessories | Dong Seung Incorporated | 75,000.00 | POM |
| Estimated Total Amount of Seized Cargoes: Php 420,189,087.00 | ||||
Ladies and gentlemen, that is all I can report to you this afternoon and I know you have so many questions in your mind as I discuss to you all about the ultimate weapon of the Bureau of Customs against smuggling and illicit trade: the Conatiner X-ray Scanner.
Again, in behalf of the XIP Head, Atty. Ma. Lourdes V. Mangaoang, we thank you very much for inviting and giving us this rare opportunity to talk to you on container x-ray inspection. I am now ready for your difficult questions.
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