An underpayment penalty does not come from the prior year. It is referring to whether or not you had enough withheld in 2016 for the bill you are paying now. For example, if you owe $5000 for this return and didn't have much of that withheld from your paycheck or make quarterly tax payments, the government charges you a penalty. The easiest way to avoid that penalty is to show you had the same or more withheld this year vs. last year.