5.1. WCO Framework of Standards

5. International Response

1	What it does Sets global Customs standards for securing and facilitating international trade through three pillars: Customs-to-Customs cooperation, Customs-to-business partnership, and Customs-to-other-government-agency cooperation.
2	When it applies All modes of transport, for participating WCO member Customs administrations and the businesses operating in their jurisdictions.
3	Who is responsible WCO member Customs administrations (Pillars 1 and 3); Authorized Economic Operators in the private sector (Pillar 2).
4	Status SAFE Framework adopted by the WCO Council in June 2005; current edition published 2025. Not strictly legally binding, but the vast majority of members have committed to implementation.

After 9/11 it became clear that Customs administrations across the world would be expected to deliver a higher level of trade security. For many member administrations still working to implement better trade facilitation, the new expectation was both significant and seemingly contradictory.

Over the next three years the WCO developed guidelines for Customs administrations to secure global trade in a way that continued to facilitate it. A central part of this approach is the recognition that Customs needs to partner with business in a new and more integrated way. The result was the WCO Framework of Standards to Secure and Facilitate Global Trade (SAFE Framework). The original SAFE had two pillars: Customs-to-Customs network arrangements, and Customs-to-business partnerships. A third pillar has since been added: Customs-to-Government networks.

In developing SAFE, the WCO based its standards on existing WCO instruments (e.g. Revised Kyoto Convention) and on other measures developed for security and trade facilitation. The Framework was adopted by the WCO Council in June 2005. The vast majority of members have since expressed their intention to implement the Framework, even though it is not strictly legally binding.

The most recent edition of SAFE (2025) has the following aims:

✔️ Standard establishment: Establish standards that provide supply chain security and facilitation at a global level to promote certainty and predictability.

✔️Integrated management: Enable integrated and harmonized supply chain management for all modes of transport.

✔️ Customs capability: Enhance the role, functions and capabilities of Customs to meet the challenges and opportunities of the 21st Century.

✔️Risk detection: Strengthen co-operation between Customs administrations to improve their capability to detect high-risk consignments.

✔️ Customs-to-Customs cooperation: Strengthen co-operation between Customs administrations, for example through exchange of information, mutual recognition of controls, mutual recognition of Authorized Economic Operators (AEOs), and mutual administrative assistance.

✔️Inter-agency cooperation: Strengthen co-operation between Customs administrations and other Government agencies involved in international trade and security such as through Single Window.

✔️ Customs-to-Business cooperation: Strengthen Customs/Business co-operation, particularly through AEO accreditation.

✔️Seamless trade flow: Promote the seamless movement of goods through a secure international trade supply chain.

Five Core Principles

01 Advance electronic information

Harmonize the advance electronic information requirement on inbound, outbound and transit shipments.

02 Risk management

Commit to employing a consistent risk management approach to address security threats.

03 Outbound inspection

Outbound inspection of high-risk consignments being exported, preferably using non-intrusive inspection methods.

04 Business partnerships

Customs will provide benefits to businesses that meet minimal supply chain security standards and best practices.

05 Collaboration with other government agencies

Enhance and promote close cooperation with Other Government Agencies (OGAs).

Further Reading: Five Core Elements of the SAFE Framework

The full text of the five core elements of the SAFE Framework can be accessed at the following link: http://publications.wcoomd.org/p412/SAFE-Framework-of-Standards---2007/product_info.html?osCsid=64ef0797bca67a660c3af0b82a49861c http://publications.wcoomd.org/images/upload/pdf/SAFEFRAMEWORK2007.pdfWCO Safe Framework of Standards

The WCO recognized the need for capacity building strategies to enhance members' ability to implement the Framework.

Pillar 1 Customs to Customs

The Customs-to-Customs pillar requires member administrations to work cooperatively, within agreed standards, to move cargo quickly and securely. The major focus of this pillar is the adoption of technology that allows for the quick identification and examination of suspect cargo. The requirements include the provision of advanced electronic information on cargo, automated targeting tools, and modern technology (X-ray, gamma ray and similar) for cargo inspection.

#	Standard	What It requires
1	Integrated Supply Chain Management	The Customs administration should follow integrated Customs control procedures as outlined in the World Customs Organization's (WCO) Customs Guidelines on Integrated Supply Chain Management (ISCM Guidelines).
2	Cargo Inspection Authority	The Customs administration should have the authority to inspect cargo originating, exiting, transiting (including remaining on board), or being transhipped through a country.
3	Modern Technology in Inspection Equipment	Non-intrusive inspection equipment and radiation detection equipment should be available and used for conducting inspections, where available and in accordance with risk assessment. This equipment is necessary to inspect high-risk cargo and/or transport conveyances quickly, without disrupting the flow of legitimate trade.
4	Risk-Management Systems	The Customs administration should establish a risk-management system to identify potentially high-risk cargo and/or transport conveyances and automate that system. This management system should include a mechanism for validating threat assessments and targeting decisions and implementing best practices.
5	Selectivity, profiling and targeting	Customs should use sophisticated methods to identify and target potentially high-risk cargo, including - but not limited to - advance electronic information about cargo shipments to and from a country before they depart or arrive; strategic intelligence; automated trade data; anomaly analysis; and the relative security of a trader’s supply chain. For example, the Customs-Business Pillar certification and validation of point-of-origin security reduces the risk, and, therefore, the targeting score.
6	Advance Electronic Information	The Customs administration should require advance electronic information in time for adequate risk assessment to take place.
7	Targeting and Communication	Customs administrations should provide for joint targeting and screening, the use of standardized sets of targeting criteria, and compatible communication and/or information exchange mechanisms; these elements will assist in the future development of a system of mutual recognition of controls.
8	Performance Measures	The Customs administration should maintain statistical reports that contain performance measures including, but not limited to, the number of shipments reviewed, the subset of high-risk shipments, examinations of high-risk shipments conducted, examinations of high-risk shipments by Non-intrusive inspection technology, examinations of high-risk shipments by Non-intrusive inspection and physical means, examinations of high-risk shipments by physical means only, Customs clearance times and positive and negative results. Those reports should be consolidated by the WCO.
9	Security Assessments	The Customs administration should work with other competent authorities to conduct security assessments involving the movement of goods in the international supply chain and to commit to resolving identified gaps expeditiously.
10	Employee Integrity	The Customs administration and other competent authorities should establish programmes to prevent lapses in employee integrity and to identify and combat breaches in integrity to the extent possible.
11	Outbound Security Inspections	The Customs administration should conduct outbound security inspection of high-risk cargo and/or transport conveyances at the reasonable request of the importing country.

Note: benefits for WCO members

The benefits for WCO Members include enhanced security, increased efficiency, improved Customs control and compliance, revenue compliance, and trade facilitation. Most of those benefits may be amplified by a cooperative arrangement between Customs and business. Furthermore, WCO Members who express the political will to implement the Framework are eligible for WCO strategic support at various phases of implementation and will have more opportunities to benefit from support from other Members or donors.

Pillar 2 Customs to Business

The Customs-to-Business pillar establishes a partnership between Customs administrations and the private sector to ensure private sector involvement in securing the supply chain. Critically, businesses that can provide a high degree of security guarantees through these partnership arrangements are rewarded with expedited processes. As SAFE itself states:

To the extent that Customs can rely on its partners in the trade community to evaluate and address threats to their own supply chain, the risk confronting Customs is reduced. Therefore, companies that demonstrate a verifiable willingness to enhance supply chain security will benefit. Minimizing risk in this way helps Customs in performing their security functions, and in facilitating legitimate trade.

The six standards of Pillar 2 are:

#	Standard	What It requires
1	Partnership	Authorized Economic Operators involved in the international trade supply chain will engage in a self-assessment process measured against pre-determined security standards and best practices to ensure that their internal policies and procedures provide adequate safeguards against compromise of their supply chains until cargo is released from Customs control at destination.
2	Security	Authorized Economic Operators will incorporate pre-determined security best practices into their existing business practices.
3	Authorization	The Customs administration, together with representatives from the trade community, will design validation processes or quality accreditation procedures that offer incentives to businesses through their status as Authorized Economic Operators. These processes should, among others, define tangible benefits as specified in Annex IV that will ensure that they see a benefit to their investment in good security systems and practices, including, at a minimum, fewer documentary examination and physical inspections, and expedited release/clearance of their goods.
4	Technology	All parties will maintain cargo and container integrity by facilitating the use of modern technology.
5	Communication	The Customs administration will regularly update Customs-Business partnership programmes to promote minimum security standards and supply chain security best practices.
6	Facilitation	The Customs administration will work co-operatively with AEOs to maximize security and facilitation of the international trade supply chain originating in or moving through its Customs territory.

Note: benefits for business

The benefits for business include enhanced security, uniformity and predictability, trade facilitation, and benefits specifically for AEOs. The AEO benefits are twofold: benefits associated with AEO status, that include enhanced security and a safer work environment, improved Business-Client and Customs-Business relationships and increased efficiency; and benefits given by Customs as incentives that include various special border procedures, lower inspection rates and reduced border clearance time.

Pillar 3 Customs cooperation with other agencies

Many government agencies cooperate with Customs in the area of supply chain security. Partnering agencies include, but are not limited to, transport security authorities, interior authorities (such as police), agencies operating at the border (such as quarantine and standards), and licensing agencies (such as those for dual use goods). The forms of mutual cooperation are varied: agencies may share common facilities, equipment and databases, exchange information, and jointly conduct targeting and risk assessment, program validations, or inspections. Cooperation may also include aligning the various agencies' security programs and control measures.

Cooperation across agencies is essential at the national level. Given the nature of the global supply chain, effective cooperation must also be promoted bilaterally and multilaterally between organizations representing different sectors and regulatory areas, in order to foster international harmonization and reduce the burden on both trade and government.

To assist with the implementation of this Pillar, members are referred to WCO tools and instruments including the Revised Kyoto Convention, Coordinated Border Management Compendium, Single Window Compendium, AEO Compendium, and Risk Management Compendium.

#	Standard			What It requires
1	Mutual Cooperation			Governments should foster mutual cooperation between their Customs administration and other competent government agencies.
2	Cooperative Arrangements/Procedures			Governments should develop and maintain cooperative arrangements or procedures among their agencies that are involved in international trade and security.
3	Alignment of Security Programmes			Governments should where appropriate, align the requirements of the various security programmes/regimes that are implemented to enhance security of the international supply chain.
4	Harmonisation of national control measures			Governments should harmonize the supply chain security national control measures of government agencies, including risk management and risk mitigation, in order to limit any negative impact of those measures on legitimate trade and international movement.
5	Development of continuity and resumptions measures			Customs should work with other government agencies as well as the private sector to identify their respective roles and responsibilities in relation to trade continuity and resumption measures in order to continue trade in the event of a disruptive incident.
6	Harmonisation of data filing requirements			Customs should develop cooperative arrangements with other government agencies that require data for the clearance of goods in order to facilitate the seamless submission, transfer, and reuse of international trade data, consistent with the Single Window concept.
7	Mutual Cooperation			Governments should foster mutual cooperation between Customs administrations and other competent government agencies involved with supply chain security across borders or within a Customs Union.
8	Development of Cooperative Arrangement or protocols			Governments should develop cooperative arrangements or protocols among their agencies that are working side by side on a shared border or within a Customs Union.
9	Harmonisation of security programmes			Governments should, where appropriate, harmonize the requirements of the various security programmes that are implemented to enhance security of the international supply chain.
10	Harmonisation of cross border control measures			Governments should work to harmonize cross-border control measures.
11	Establishment of mutual cooperation			Together, governments should foster cooperation between and among international bodies that are involved with supply chain security.
12		Development of cooperative arrangements or protocol	The WCO on behalf of its Members should develop and maintain cooperative arrangements with those international governmental bodies (e.g. ICAO, IMO and UPU) that are involved with supply chain security.

Changes introduced in SAFE 2025

The WCO released its 2025 iteration of the SAFE Framework of Standards at the end of June 2025. The 2021 version remains largely unchanged, but has been adjusted in several places. As the Secretary-General of the WCO, Ian Saunders, states in his introduction:

This 2025 version marks a significant milestone in our continuing effort to advancing secure, efficient, and innovative international trade. It is designed to respond to emerging challenges and to harness opportunities that pave the way for a resilient global trading environment.

The key changes in this iteration of SAFE are:

✔️ Greater emphasis on inter-agency cooperation, particularly with environmental agencies	✔️ Heightened emphasis on internal risk
✔️ AEOs are to have a robust Code of Conduct	✔️ SAFE is to be made more accessible to micro and small and medium-sized enterprises (MSMEs)
✔️ Customs are encouraged to share more best practices, including sealing techniques

These changes have been delivered through the following adjustments:

A new paragraph has been inserted into the commentary on Pillar 1, Standard 1, Sealing:

Customs administrations should seek to learn from each other and from industry innovation on sealing (for example work on loss prevention and customer tracking) to understand how this can be used to improve the Customs risk assessment process and, subsequently, to highlight best practice.

A new paragraph has been inserted into the commentary on Pillar 1 in relation to the cargo declaration:

Customs should consider enabling users to provide smarter, more accurate and more timely data to enhance and improve risk assessment and facilitation objectives. This could include using input from supply chain service providers, such as online marketplaces and supply chain management networks. This could lead to increased security, reduced false positives, provide more opportunities to resolve issues earlier before arrival, and enable more innovative models of cargo declaration.

A new paragraph has been added to Standard 1 of Pillar 2:

It should be recognized that MSMEs that are part of larger AEO certified companies' supply chains have already undergone significant selection and vetting processes and are being managed by their vendors/partners. For example, this recognition/special status for MSMEs could be leveraged in the course of risk analysis being performed by Customs administrations.

A new sentence has been added to the commentary in Pillar 2, Standard 5:

Customs should ensure that AEOs are consulted and informed with adequate advance notice before new policies and requirements are issued.

A new paragraph has been added to the commentary in Pillar 2, Standard 6:

Customs administrations should ensure that AEOs are consulted before issuing new policies and requirements to allow AEOs to provide reasonable suggestions that will help avoid unintended negative consequences as well as allow for a better implementation within existing systems.

A new paragraph has been added to the commentary under Pillar 3, Standard 1:

2.1.7 Mutual cooperation is encouraged between Customs and other cross-border agencies, in particular environmental authorities. Cooperation may include alignment of procedures and controls for applicable standards.

Further Reading: WCO SAFE Framework of Standards

The full text of the revised WCO Framework of Standards can be accessed at the following link: http://publications.wcoomd.org/p412/SAFE-Framework-of-Standards---2007/product_info.html?osCsid=64ef0797bca67a660c3af0b82a49861c http://publications.wcoomd.org/images/upload/pdf/SAFEFRAMEWORK2007.pdfWCO Safe Framework of Standards