Automatically Add an Item to every order

Hello,

We do international shipment of our products and we are now charging our intl customers a flat fee for a Certificate of Origin and a Health Certificate.    For accounting purposes, we need these charges to appear as line items on the Sales Order.

The only qualifiers would be a list of customers in which these charges apply.

I've looked into adding an item to the order using a Promotional modifier, but that doesn't appear to work since OAP wants to utilize quantities from the other line items.

I've tried using a surcharge list but the result was the same.  I also tried a Freight charge, but haven't been able to get the item to appear automatically on the sale order.