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JOINT AND SEVERAL LIABILITY IN CUSTOMS AND FOREIGN EXCHANGE MATTERS
Erwin Blanco Nagle
Consultor y Profesor de Comercio Internacional, Derecho Aduanero, Derecho Cambiario e Impuestos Indirectos.
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Joint and several liability is a relevant issue for the board and other stakeholders in any organization, given that, in the event of contingencies, both the legal entity and third parties linked as liable parties will be called to respond either limitedly or unlimitedly, depending on their role and/or level of involvement.

Given the importance of this topic, in this relaunch of my personal blog, I am excited to share some opinions on joint liability in obligations, with a special focus on customs and foreign exchange areas.

I. The Capacity to Incur Obligations.
The legal universe, from its foundational function, conceived the concept of personality, applicable to both natural and legal persons, endowed with the capacity to possess and exercise rights, enabling them to be subjects of rights and obligations.

The scholar Tulio Guzmán Civeta, who was my professor in the study of normative systems and Roman institutions, stated in his work: Roman Law“The obligation - obligatio - is a legal bond by virtue of which a debtor - is constrained before another creditor - to perform a certain obligation.”

In the Colombian legal system, Article 633 of the Civil Code defines the legal person as follows:

“A legal person is referred to as a fictitious entity capable of exercising rights and incurring civil obligations, as well as being represented in judicial and extrajudicial matters.”
On the other hand, Article 98 of the Code of Commerce refers to the concept of legal entity as follows:

“The company, once legally established, forms a legal entity distinct from the individual partners.”

The obligations acquired by individuals carry an implicit responsibility to fulfill them, and failure to do so generates different types of consequences for the defaulting party.

The consequences of non-performance primarily affect the directly liable party, meaning the person who committed the act giving rise to the obligation. However, these consequences may also extend to third parties who may be called to respond, either by operation of law or through private agreement.

II. Solidarity in obligations
Joint liability in obligations has been regulated across various fields according to the specificities of each area. However, some areas share provisions from the same regulation, such as tax law, customs law, and foreign exchange law.

  • Joint Liability in Roman Law

The Roman legal system, in terms of joint liability for obligations, provided for the necessity of the creditor to separately question the debtors, who would respond that they accepted the obligation by saying “spondemus”.

Although contractual joint liability was present in Roman law, it was not established as a fundamental rule. However, the institution of debt division was maintained, even after the fall of the Roman Empire.

  • Joint Liability in Civil and Commercial Law

Influenced by the Romanist legal system, Colombian regulatory frameworks established that in civil matters, joint liability must arise ex negotio or ex lege (Article 1568 of the Civil Code). In contrast, in commercial matters, if there is a plurality of debtors, joint liability is presumed (Article 825 of the Commercial Code).

  • Joint Liability in Tax Law

With regard to tax matters, Article 793 of the Tax Statute establishes joint and several liability and specifies who is liable alongside the taxpayer for the payment of the tax. Meanwhile, Article 794 provides for the joint and several liability of partner members, associates, cooperators, joint owners, and consortium members for the taxes of the company.

  • Joint Liability in Customs and Foreign Exchange Law

In customs and foreign exchange matters, Article 13 of Law 1066 of 2006, which establishes standards for the normalization of the public portfolio and dictates other provisions, provides for:

“In customs and foreign exchange matters, joint liability and subsidiary liability will apply to the total amount of obligations as established in the Tax Statute. The linkage will be carried out in accordance with the procedure outlined in Title VIII of Book Five of said regulation and other rules that add to and complement same.”
The article in question was the object of a public action of unconstitutionality, under the argument that the development of customs and foreign exchange matters falls within the executive's purview, based on the so-called framework laws. Therefore, the legislature was constitutionally limited in its ability to legislate on these topics.

The Constitutional Court, by judgment C-140 of 28 February 2007, declared Article 13 enforceable on the following grounds:

1. The framework law technique allows the development of a form of collaboration between the Legislative and Executive branches for the regulation of certain constitutionally designated matters.
2. In the case of framework laws, the role of Congress is limited to establishing the general guidelines or directives that must guide the regulation of a specific matter, while the Executive is responsible for specifying and completing the regulation of the issue at hand.
3. As a result, the legislator's competence in these matters is restricted, as they cannot regulate the matter exhaustively but must limit themselves to establishing the aforementioned general guidelines. In this sense, the Court has stated that framework laws involve "a mitigation of the general competence clause recognized for the legislative body."
4. The extension of joint liability and subsidiary liability for tax obligations to customs obligations could be understood as a modification of "the other provisions concerning the customs regime”. However, in this case, such modification does not respond to “commercial policy reasons”, but rather aims to regularize or ensure the collection of public debt, as previously mentioned. This is a fiscal objective, which does not fall within the executive purview, but is strictly reserved by law. By virtue of this, the measure does not align with those that must adhere to the technique of the framework laws or legal framework.
5. Joint liability in the payment of obligations arising from violations of the foreign exchange regime is not a matter that can be affected by the economic variables influencing international exchanges. To establish this joint liability in foreign exchange, or to eliminate it, there is no need for updated and constantly changing technical-economic information, nor is it a measure that must be adopted to respond swiftly to the ever-changing needs of the foreign exchange market. For all the above reasons, there are no grounds to believe that Congress lacks the technical or operational capacity to implement joint liability in foreign exchange matters. This would be the definitive argument to establish that, due to a lack of such capacities, and because of the particular and changing nature of the issue, it does not fall within its ordinary legislative powers but instead requires the use of the framework law technique.
In accordance with the constitutional provision, Decree Law 920 of 2023, which contains the customs sanctioning regime in Colombia, established in its Article 6:

Pursuant to Article 13 of Law 1066 of 2006, or the standard that modifies or replaces it, in customs matters, joint liability and subsidiary liability shall apply to the total amount of customs duties, penalties, interest, and their adjustments in the manner established in Articles 793, 794, 794-1, and 828-1 of the Tax Statute.”

On the other hand, Decree 2245 of 2011, which establishes the foreign exchange sanctioning regime under the authority of the National Tax and Customs Directorate (DIAN), enshrined in its Article 33:

Those held jointly liable for the payment of the penalties referred to in this decree, imposed on legal entities or entities assimilated to them, include legal representatives, partners, administrators, associates, cooperatives, consortium members, community members, participants, fiscal reviewers, officials, and employees, as well as the absorbing company, who authorize or execute acts that violate foreign exchange regulations or fail to comply with them.” 

It should be noted that joint liability in customs and foreign exchange matters arises by virtue of the law, particularly in the following scenarios:

  • The joint liability of general and special agents in the subscription and filing of declarations.
  • The joint liability of heirs and legatees for the obligations of the deceased.
  • The joint liability of partners in dissolved companies.
  • The joint liability of partners in active companies concerning the obligations incurred in the course of their commercial and service activities.
  • The joint liability of shareholders who have committed, participated in, or facilitated acts of fraud or abuse of the corporate personality of the company to defraud the tax administration, or in an abusive manner as a mechanism for tax evasion.
  • In merger agreements, the joint liability of the absorbing company for the obligations of the absorbed company.
  • The joint liability between subordinate companies and their parent company abroad.
  • The joint liability of the assets of partnerships or joint ventures of legal entities without legal personality.

Thus, it is essential in any customs or foreign exchange action to keep in mind the joint liability concerning the obligations arising from the execution of the economic event, which arises by operation of law, enabling the involvement of various liable parties in the respective process.

In this context, in the current world of constant change, where new commercial and service exchange schemes are created daily, comprehensive planning and continuous monitoring of the various international transactions that any organization develops or plans to develop becomes the best risk prevention tool. If these risks materialize, they can directly or indirectly impact the legal entity, its partners, administrators, and employees.

Thank you for reading me…

Erwin Blanco Nagle

Lawyer, Professor, and Entrepreneur

erwin@erwinblanconagle.com

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