The government is definitely trustee and surety for the certificate. They are the only signatory on the certificate. I am not sure that they are beneficiary tho. If they are, it would be a mistake that needs fixing. Perhaps that is what happened when the contract was signed. We "neglected" to name the beneficiaries and they acted AS trustee naming themselves as beneficiary. Is that what you are suggesting?
Printed copy · Anthology Volume 7, page 746Printed copy from The Tender For Law Anthology, Volume 7, page 746 (printed 13 June 2014). Added by this site; not part of the Facebook export.