April 2014

THE CONTRACT SURETY

BOND CLAIMS PROCESS
Developed by the
Associated General Contractors of America

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 THE CONTRACT
SURETY BOND
CLAIMS PROCESS

OVERVIEW A surety bond assures that the bond principal will perform
its contract or pay what it owes to subcontractors and
suppliers. If there is a legitimate dispute between the
What is a surety bond? principal and obligee, the surety is not normally in a
A surety bond is a three-party contract. One party, the position to resolve it. That does not mean, however, that
surety, promises, in accordance with the terms of a bond, the surety will ignore a project disagreement.
to answer for the default of another party, the principal. Disagreements can become disputes. Disputes can
The third party, the obligee, is protected by the bond. become breaches of contract. Breaches of contract can
Typically, the principal and surety will promise to perform become defaults that justify termination of contracts.
or pay the obligee up to a stated amount of money for Everyone involved in the surety process is interested in
damages if the principal fails to perform its contract avoiding that progression.
obligations. A fourth party, the surety bond producer or
“bonding agent,” is not actually a party to the bond, but Do principals and obligees need to verify that
is a resource to the other parties and often will have a the sureties providing bonds for projects are
facilitating role in a claims situation, especially because
the bond producer often is the most familiar with the
licensed to do business, and that the bonds
principal and its immediate situation. themselves are authentic?
Sometimes contractors are principals. Sometimes they are
When a prime contractor furnishes the bonds, the project obligees. And sometimes they are both. Whatever the
owner is the obligee and the prime contractor is the case, it remains important for contractors to look into the
principal. When the prime contractor requires the bonds sureties with whom they are dealing, and to ensure that
from a subcontractor, the subcontractor is the principal the bonds provided for a project are authentic. A
and the prime contractor is the obligee. financially unsound surety cannot add to the credit
standing of its principal or provide its obligee with the
Do surety bonds function like traditional protection that the latter expects. Fraudulently issued
bonds can leave principals in breach of their contracts and
insurance policies? leave obligees without any protection of any kind.
Although the surety is almost always an insurance
company, the surety bond is not a typical insurance policy.
As a threshold matter, a contractor should check with its
The surety provides financial assurance of its principal’s
state insurance department to ensure that the surety is
performance. The surety does not “assume” the primary
admitted to do business in the jurisdiction of the
obligation, but is secondarily liable. The principal remains
project. With few exceptions, a
primarily liable for performance of its contract. The
surety must possess a certificate
principal must reimburse the surety for any loss the surety
of authority from the insurance
may suffer by virtue of the surety having extended surety
commissioner in each state in
credit to back the principal’s performance. The obligee is
which it issues bonds. The
protected by the bond against financial loss as a result of
certificate provides some assurance
the principal’s default. The bond does not, however,
that the surety meets minimum capital
guarantee that disputes will not arise between the obligee
requirements and periodically files
and the principal.
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financial reports with the state. The National Association A performance bond provides assurance that the obligee
of Insurance Commissioners has posted a list of all will be protected if the principal fails to perform the
of the states’ insurance departments on the Internet at bonded contract. If the obligee declares the principal in
www.naic.org/state web map.htm. default and terminates the contract, it can call on the
surety to meet the surety’s obligations under the bond.
The federal government also requires all corporate Bonds differ in terms of the types of options available to
sureties providing bonds for its projects to possess a the surety, and to the obligee, in the event of a default.
certificate of authority from the U.S. Treasury Department.
The federal government has posted a list of the sureties A payment bond provides assurance that certain laborers
that have such a certificate (and are therefore approved to and material suppliers that furnish services, labor, and
provide bonds for federal projects) on the Internet at materials for use on the bonded contract will be paid.
www.fms.treas.gov/c570/index.html under “Sureties Payment bonds are provided primarily for the benefit of
Listing.” The list is commonly known as “Circular 570” the principal’s suppliers and subcontractors on a project,
or the “T-List,” and it includes the address and phone providing them with a remedy in the event of non-
number for each surety and each state in which the surety payment. With that benefit, however, come certain
is licensed to operate. obligations to notify the surety or the contractor of non-
payment in a timely manner. In many states, the time
In addition to this public information, contractors should periods for sending notices or enforcing claims are set by
request their bond producers to provide insight into the state laws. There are also laws governing payment bond
reputation, financial strength, and claims handling claims on federal projects.
practices of specific sureties. Contractors may also want
to contact financial rating services, such as A.M. Best Is it important to review and be familiar with
Company. surety bond language?
Although most bond forms are simple documents, often no
Whenever presented with a bond, a contractor should more than two pages in length, the rights and liabilities of
also contact the surety that apparently issued the bond to all of the parties to a surety bond—the principal, surety, and
verify that it is duly authorized. In the process, the obligee—can be quite complex. With surety bonds, as with
contractor can also ensure that it has properly identified other contracts, it is critical to read the bond to determine
the surety. It is unfortunate, but true, that some small the respective rights and obligations of the parties.
number of disreputable individuals and firms have taken
names that are deceptively similar to reputable sureties, This publication is only a starting place to understand the
hoping to benefit from the resulting confusion in the bond claims process. Whether you are a principal, an
marketplace. Circular 570 provides a specific contact obligee, or a subcontractor or supplier with a claim, there
number for each surety that it lists. In addition, the is simply no substitute for sound professional advice by a
Surety & Fidelity Association of America has surety qualified attorney or surety professional.
contact information in its SFAA Bond Obligee Guide,
which contractors can find on the Internet at
Is each claim or default situation unique?
www.surety.org/?page=VerifyYourBond.
None of the parties enters into contracts with the
expectation of a default. When one occurs, or is claimed
to have occurred, there has been a failure somewhere.
Are there different types of surety bonds? This is so even if it is only a failure in communication or
There are three primary types of contract bonds: bid expectations and not a true default. By the time an
bonds, performance bonds, and payment bonds. A bid obligee makes the difficult decision to terminate a
bond provides financial protection to an obligee if a contractor, the principal and obligee are often frustrated,
bidder is awarded a contract pursuant to the bid distrusting, and unhappy with each other. The unique facts
documents, but fails to sign the contract and provide any and circumstances of the project, the personalities of the
required performance and payment bonds. The bid parties involved, the exact terms of the bonds, and
bond also helps to screen out unqualified differing state laws on bonds and contracts mean that no
bidders and is necessary to the process two default situations are ever quite the same. Hard and
of competitive bidding. fast rules or guidelines as to any party’s expectations are
difficult, if not impossible, to establish.

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PERFORMANCE DEFAULTS Only in rare circumstances is a default crystal clear. The
bonded contractor is in bankruptcy and has admitted that
it cannot fulfill its obligations. It may have agreed that the
Can sureties help avoid performance defaults obligee has not contributed to the default. In such a
in the first place? circumstance, the surety should be able to act relatively
There are innumerable instances in which sureties have quickly. Short of that, the surety will perform an
mitigated performance problems so that such problems investigation and determine its options. Any unilateral
did not rise to the level of contract defaults. To that end, action by the surety to blindly heed the demands of either
sureties offer their principals assistance and benefits to the obligee or the principal may result in perceived
ensure their completion of bonded obligations, including unfairness to one or both. In all instances, an obligee
accounting and technical assistance. One of these unseen should expect a prompt response from the surety to the
benefits is where a surety takes control of contract funds notice of declaration of default, communication while the
and provides additional capital to a struggling contractor investigation takes place, and a decision within a
to avoid a default. This may happen without the obligee reasonable period of time.
even knowing that a problem existed and happens more
often than many obligees realize. How important is early communication in
addressing performance defaults?
What should an obligee expect in a The surety may ultimately be liable for the delay, but it has
performance bond default situation? very limited ability to avoid the time impact of a default,
A performance bond provides assurance that the obligee no matter how good its intentions. Early communication
will be protected if the principal fails to perform a bonded with the surety vastly improves the surety claims process.
contract. It is a financial “safety net.” The performance A surety’s ability to limit the impact of a default is directly
bond does not guarantee that there will be no disputes, related to whether or not the obligee has kept the surety
disagreements, or delays. While bonded contractors are informed of the status of the project, how quickly the
pre-qualified, the bonding process does not guarantee obligee provides needed information to the surety when a
peace and harmony when disputes arise. An obligee default is declared, and the level of cooperation of both
should not expect otherwise. the principal and the obligee.

What is the general timing of the Some performance bonds may require a meeting among
surety’s response? the obligee, principal, and surety prior to any declaration
The most frequent complaint by obligees in default of default. Even if the bond does not require it, such a
situations is the speed at which decisions are made and meeting is almost always useful. If there are such serious
action taken. Most contracting parties are reluctant or slow problems on the job that the obligee is considering a
to declare a default. They often provide opportunities to termination for default, the surety should want to know
the principal to cure a perceived default. They may about it, and the obligee should want to involve the
tolerate imperfect or slow performance for extended surety. Surety claims professionals are experienced in
periods of time while the other party promises dealing with troubled projects, and the surety can often
improvement. By the time a default is actually declared, help avoid a default termination. It is at this initial meeting
the obligee may be at wit’s end. Perfectly rational general stage that the professional bond producer may be of
contractors that would never think of giving a mechanical great value to the process, as a confidant of both the
subcontractor less than two surety and the principal.
weeks to properly price and
scope its work for a bid in a If the bonded contractor is otherwise competent but does
very controlled situation not have the capital necessary to complete the project,
find themselves demanding the surety may advance funds to finance completion by
that the surety mobilize in the the principal. If that occurs, the obligee should be willing
midst of controversy, properly to make future payments as joint checks or as otherwise
assess the status of the work, requested by the surety to assure that funds from the
present a plan for the completion bonded contract are used only to pay obligations on the
of a half-complete mechanical contract. The surety and the obligee have a common
system, and commence productive interest in seeing that contract funds are not diverted from
work in less time. It simply cannot a bonded project.
happen.
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What is the importance of formal termination a completion
of the principal’s contract? contractor. The
Two contractors cannot perform the same work at the delivery method by
same time. That is one reason most bond forms make the which the work is
formal termination of the principal’s contract a condition completed will depend
precedent to the surety’s performance obligations. largely on the status of
Although sureties will insist that they cannot assume completion. A surety is more
responsibility for performance unless the contractor is likely to elect this option for a
terminated, that does not mean they cannot and should job that is well along in performance.
not investigate the problems and consider alternatives
prior to the termination. Early warning and cooperation If this second takeover option is used, the surety and the
are always helpful in minimizing everyone’s losses. obligee often will enter into a “Takeover Agreement”
spelling out their respective rights and obligations in
If the obligee does decide to terminate the bonded connection with completion of the work. Although some
contract and call upon the surety, the surety and the have suggested that a Takeover Agreement is
obligee generally have a number of options. Some bond unnecessary, and that the surety should just show up and
forms spell out the options and make them part of the commence work, the better practice is to avoid
agreement. Some forms are silent on the subject of misunderstandings and disputes later on by entering into
performance default options. Whether or not the bond a definitive written agreement.
spells out the options, or even if the options in the bond
are limited, it always makes sense to explore all possible Allow Obligee to Complete
options for the resolution of disputes and the completion Another option following the default of the principal is for
of bonded work. the surety to elect to not be involved in the completion
work. This is usually an available option, regardless of the
What are typical options available to the options spelled out in the bond. A surety that elects this
option should advise the obligee promptly so that job
surety to remedy a performance default?
completion is not unduly delayed. In this scenario, the
surety remains exposed to liability for the costs to
Tender Option complete in excess of the remaining contract balance up
One option is for the surety and the obligee to agree on a
to the penal sum of the bond.
replacement contractor to complete the bonded work. This
is often referred to as the surety’s “tender option,” because
Because this option leaves the surety with little or no
the surety “tenders” a new contractor to the obligee. If the
control over the manner in which the work will be
replacement contractor’s price exceeds the balance
completed, it is not one often exercised by sureties. The
remaining in the bonded contract, the surety will fund the
most common situation in which the surety elects this
excess either by paying the replacement contractor as the
option is if the job is close to completion and the
work proceeds or by paying the obligee the amount of the
obligee’s plan for finishing the work is reasonable.
overrun in return for a release. Under normal circumstances,
the obligee and the surety will insist that the replacement
Denial of Claim
contractor provide new bonds to guarantee its
If the surety, after its investigation, concludes that it has
performance of the completion work. One advantage of
no liability under its bond, the surety may deny the claim
this tender option is that the obligee can deal directly with
and decline to perform.
the new contractor in administering the project.

Takeover Option Other Options

A second option in the event of a default is for the surety Other options are limited only by the facts, the resources,
itself to assume or “take over” responsibility for and the creativity of the parties involved. These range
completing the remaining work. The surety would then from up-front cash settlements, to continued performance
hire construction professionals to manage and perform by the original contractor, possibly with additional
the completion. Although it is possible on a given job that monitoring, to various combinations of all of the available
a consultant or construction manager is all that is needed options. The obligee or the surety that insists that the
and the original subcontractors can perform the default be remedied only in one way may often miss
completion work, it is more common for the surety to hire opportunities for savings in time, money, and heartache.

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Is there a common interest shared among the Is strict observance of notice and time
parties to the performance bond? requirements important to claimants?
Even if there is a dispute over the propriety of the Claims against payment bonds are sometimes made
termination, all three parties to the bond have a common against financially sound principals that have breached no
interest in seeing the work is promptly completed with as obligation to the claimant. This occurs when a claimant
little cost and delay as possible. The fact that they has no contract with the principal but has not been paid
disagree on the existence of a default does not by the principal’s subcontractor or sub-subcontractor. The
necessarily prevent cooperation to complete the work. In fact that the principal has paid its subcontractor is not
an appropriate situation, for example, the surety can take normally a defense to a claim by an unpaid sub-
over the work or tender a replacement contractor under a subcontractor or supplier to the subcontractor. The bond
“reservation of rights.” Under such an arrangement, the principal, therefore, can find that it has to pay twice for
parties agree that if it is eventually determined that the the same work – once to the subcontractor and again to
default was wrongful, the obligee will pay the surety any the subcontractor’s sub-subcontractor or supplier. To give
excess costs. If the obligee is certain the default was the principal an opportunity to protect itself from such
proper, it runs no risk in making such an agreement with double liability, most bonds require that a claimant that
the surety. does not have a contract with the principal give the
principal or the surety, or both, written notice of its claim

PAYMENT CLAIMS
within a relatively short time after the claimant furnished
the labor or material for which claim is made. In some
cases, the time period runs from the date of the last of the
claimant’s work. In others, it may run from the date of each
Can the surety help avoid payment claims in delivery. The terms of the bond and any statutes
the first instance? governing the bond will control those deadlines. Courts
A surety should be made aware of any perceived project strictly enforce such notice requirements. Therefore, a
problems, including allegations of unpaid subcontractors prudent potential claimant should take any necessary
and suppliers, so the surety can consult with the principal steps to understand its rights, obligations and all
and ascertain whether the principal is keeping up with its applicable timeframes. Some subcontractors and suppliers
payment obligations. If, for example, the surety finds that request copies of bonds before they make any deliveries,
the principal is experiencing cash flow problems, leading, so that they are aware of any notice requirements.
in turn, to slow or nonpayment of downstream
subcontractors and suppliers, the surety can assess what Can a claimant facilitate the surety’s
steps to take, if any, to avoid further issues, including evaluation of the payment claim?
whether it will provide the principal with additional A payment bond claimant already may consider its
financing. In such manner, the surety can avoid additional account “past due” by the time it turns to the surety. Just
payment claims and the possible imposition of liens like the performance bond obligee that believes it has
against the project. already lost too much time accommodating the principal,
the payment bond claimant is anxious for payment. The
What should a payment bond claimant surety, on the other hand, may have no direct involvement
expect? in the project and no prior knowledge of the claim. The
A payment bond, sometimes called a “Labor and Material best way for a claimant to speed up the claim process is
Payment Bond,” is required by the obligee, but the bond to write the surety, explain the claim, submit full and
is primarily for the benefit of the principal’s suppliers and complete documentation supporting the amount owed,
subcontractors. The bond obligates the principal, whether and ask for any forms or affidavits the surety needs to
a contractor or subcontractor, to pay for labor and evaluate the claim. The surety will typically want to receive
material furnished for use in performance of the bonded copies of any subcontract or purchase order under which
contract. The claimants are usually limited to the work was performed, invoices to the principal or the
subcontractors or suppliers to the bond principal or principal’s subcontractor, a record of payments and how
sub-subcontractors or suppliers to a subcontractor of they were allocated, and delivery slips or other documents
the principal. showing delivery of material to the job site.

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The surety will want to obtain its principal’s position on the
claim, and if the claimant has correspondence or other
documents from the principal acknowledging that the
claim is owed, it should submit them with the initial claim
letter. It should also provide any supporting material the
surety requests and follow up to see if anything else is
required. The more documentation the claimant can
provide early in the process, the faster the surety can
examine the claim and respond.

What should claimants expect from the Are prolonged disputes counter to the
payment bond claims process? common interests of all the parties?
The surety typically will acknowledge receipt of the claim The bond principal, the obligee or the claimant, the
and ask for any missing information. The surety will also surety, and the principal’s bond producer have many
contact the principal and ask for its position. A bond claim common interests in the prompt and fair resolution of
is not a way to pressure the principal to pay something it bond claims. No one in the construction process benefits
legitimately believes is not owed. A bond claim is not a from prolonged and needless disputes. If the obligee or
way to nudge a principal into more timely payment. A other claimant embraces reasonable expectations,
payment bond claim is a safety net against a credit maintains open communication lines, and is committed to
decision gone wrong. acting responsibly, including furnishing requested claims
information promptly, most claims can be amicably and
The vast majority of payment bond claims are resolved successfully resolved.
amicably and promptly, usually by the principal. When the
principal has clearly defaulted in its payment obligations,
the surety should be expected to promptly pay those
claimants that have established the validity of the debt
This publication is not intended to provide specific advice for a
and have met the notice requirements of the bond. The particular situation or to create any specific standards or guidelines.
surety should not be expected to pay claims without This publication should not be construed as an undertaking to
provide legal or other professional advice or understood as an
regard to their merits, but it should be expected to undertaking to perform services on behalf of any party. AGC
respond to claims promptly and, if it denies a claim, to assumes no liability for reliance on the contents of this publication.
explain its reasons.
© 2014, The Associated General Contractors of America.
All Rights Reserved.
How important is communication throughout
For additional materials and information on surety bonding, contact
the claims process? the Surety Information Office (SIO) at Email: sio@sio.org or Web Site:
During the course of a claim, which often is a time when www.sio.org.
communication already may be strained, there is a
heightened need for effective communication by all
parties. This factor cannot be overemphasized.

Each party to the process should communicate openly

and candidly with the other parties. The timeliness of the
surety’s response depends on it. Most defaults do not
occur overnight. They are the product of a number of
causes over an extended period of time. They can seldom
be remedied overnight. Any party to the problem can
greatly increase the likelihood of a good result by
communicating promptly, factually, and objectively.

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