FLH SPECIFICATION PROCEDURES 

FEDERAL LANDS HIGHWAY 

SPECIFICATION PROCEDURES

Pennsylvania Avenue at the White House 

Washington State Route 123, Mt. Rainier National Park 

US Department of Transportation 

Federal Highway Administration 
FLH SPECIFICATION PROCEDURES 

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INTRODUCTION 

Well-written specifications are important to ensure a project’s success. Specifications need to be 

clear, concise, complete, correct, and consistent. 

See Subsection 104.04 of the FP for the relationship of specifications with other contract 

documents. Ensure the specifications do not conflict with the plans or other contract documents. 

Table of Contents 

CHAPTER 1 ⎯ SPECIFICATIONS TYPES ............................................................................ 1

1.1 FLH SPECIFICATION TYPES........................................................................................... 1 

1.2 NON-FLH (REFERENCED) SPECIFICATIONS............................................................... 2 

CHAPTER 2 ⎯ DEVELOPMENT OF FP AND FLH SUPPLEMENTAL 

SPECIFICATIONS....................................................................................................................... 3

2.1 RESPONSIBILITY FOR DEVELOPMENT. ...................................................................... 3 

2.2 SUBMITTING PROPOSED SPECIFICATIONS FOR SCG CONSIDERATION.................................... 4 

CHAPTER 3 ⎯ RESEARCHING AND GATHERING INFORMATION........................... 7

3.1 LIBRARY OF SPECIFICATIONS (LOS)........................................................................... 7 

3.2 OTHER SOURCES OF INFORMATION. .......................................................................... 7 

CHAPTER 4 ⎯ TYPES OF SPECIFICATIONS...................................................................... 9

4.1 PERFORMANCE OR END-RESULT SPECIFICATIONS. ............................................... 9 

4.2 RESTRICTED PERFORMANCE SPECIFICATIONS....................................................... 9 

4.3 MATERIALS AND METHODS SPECIFICATIONS......................................................... 9 

CHAPTER 5 ⎯ Writing Specifications.................................................................................... 11

CHAPTER 6 ⎯ SPECIFICATION ORGANIZATION......................................................... 13

6.1 DIVISIONS........................................................................................................................ 13 

6.2 SECTIONS......................................................................................................................... 13 

Chapter 7 ⎯ DEVELOPING SPECIAL CONTRACT REQUIREMENTS (SCRS) .......... 18

CHAPTER 8 ⎯ COORDINATION OF PLAN NOTES AND SPECIFICATIONS............ 19

CHAPTER 9 ⎯ SPECIFICATION REVIEW AND EVALUATION PROCESS ............... 20

CHAPTER 10 ⎯ ADDITIONAL RESOURCES .................................................................... 22

10.1 STYLE GUIDES. ............................................................................................................. 22 

10.2 TECHNICAL WRITING RESOURCES. ........................................................................ 22 

10.3 SPECIFICATION WRITING RESOURCES. ................................................................. 22 
CHAPTER 1 ⎯ SPECIFICATION TYPES 

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CHAPTER 1 ⎯ SPECIFICATIONS TYPES 

1.1 FLH SPECIFICATION TYPES 

There are five types of FLH specifications: 

1. Standard Specifications. The Standard Specifications for Construction of Roads and 

Bridges on Federal Highway Projects which are approved by the Office of Federal Lands 

Highway (OFLH) for general application and repetitive use on FLH projects. This book 

is issued periodically and is designated as FP-XX (e.g., XX indicates the year of 

issuance). 

2. FLH Supplemental Specifications. FLH supplemental specifications are additions 

and revisions to the Standard Specifications that have been approved by the OFLH for 

use on all FLH projects. 

3. Division Supplemental Specifications. Division supplemental specifications are 

additions and revisions to the standard or FLH supplemental specifications that have been 

approved by a Division. 

4. Unique Project Specifications. Unique project specifications are additions and 

revisions to the standard specifications, FLH supplemental specifications, or division 

supplemental specifications that are developed and used on an individual project basis. 

Unique project specifications are written to address a unique requirement for a specific 

project. 

5. Special Contract Requirements. Special contract requirements (SCRs) consist of all 

the additions and revisions to the standard specifications applicable to an individual 

project. SCRs include FLH supplemental specifications, division supplemental 

specifications, and unique project specifications with no distinction made between the 

three. 

The relationship of supplemental, unique project, and SCRs is shown in Figure 1-1. 
CHAPTER 1 ⎯ SPECIFICATION TYPES 

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Divisional Library of Specifications (LOS) 

Unique Project 

Specifications 

Special Contract 

Requirements 

Division Supplemental 

Specifications 

FLH Supplemental 

Specifications 

Figure 1-1 

Relationship of Specifications to SCRs 

1.2 NON-FLH (REFERENCED) SPECIFICATIONS. 

FLH specifications may refer to a specification, standard or test method adopted by a recognized 

technical association, such as: 

● American Association of State Highway and Transportation Officials (AASHTO), 

● American National Standards Institute (ANSI); 

● American Society for Testing and Materials (ASTM); 

● American Wood Preservers Association (AWPA); 

● American Welding Society (AWS); and 

• American Water Works Association (AWWA). 

Specifications may also refer to State transportation agency specifications. This can range from 

total use of State specifications to allowing some State-specified methods or products to be 

acceptable alternatives to FLH requirements. 

The specification writer must ensure that the specifications incorporated by reference do not 

conflict with other contract documents. 
CHAPTER 2 ⎯ DEVELOPMENT OF FP AND FLH SUPPLEMENTAL SPECIFICATIONS

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CHAPTER 2 ⎯ DEVELOPMENT OF FP AND FLH SUPPLEMENTAL 

SPECIFICATIONS. 

2.1 RESPONSIBILITY FOR DEVELOPMENT. 

Responsibility for the FP and FLH supplemental specifications resides with the Specifications 

Coordination Group (SCG). The SCG consists of the OFLH Program Development’s 

Construction Standards Engineer, and a representative from each FLH Division. The fourmember SCG must reach a consensus on all decisions made. 

The process by which the SCG reviews and adopts supplemental specifications, and, by 

extension, maintains and updates the current FP, is described below. This FLH specification 

process is also depicted graphically in Figure B2-1. 

1. FLH supplemental specifications may originate as division supplemental 

specifications, legal requirements, or comments and suggestions from FLH functional 

disciple leaders, FHWA, FLH Divisions, contractors, industry representatives, or partner 

agencies (e.g., Forest Service, Bureau of Indian Services, National Parks Services, etc.). 

2. The SCG reviews the proposed revisions and additions, coordinating with functional 

disciple leaders and their multidivisional teams (e.g., Materials Technology Team) as 

necessary to finalize specification language. To allow for informed decision-making, a 

proposed supplemental specification should be accompanied by the following supporting 

information and background. 

a. Instructions for Use. A statement declaring when the proposed revision or 

addition to the FP is to be made. 

Example: 

When waterborne traffic paint is permitted, include the following:. 

b. Reference for Change. A statement that clearly defines what part of the FP is to be 

changed. 

Example: 

Delete the exist subsection and substitute the following:. 

c. Specification Wording. The proposed revision or addition is well-written 

specification language. 

Example: 

(g) Daylight reflectance. (Without glass beads) 

(1) White, ASTM E 1347 84% relative to magnesium 

oxide standard 

(2) Yellow, ASTM E 1347 55% relative to magnesium 

oxide standard 

d. Reason for Change. The reason for the revision or addition including a simple 

explanation of why it is necessary, what it will accomplish, and any applicable 

background information. 

Example: 
CHAPTER 2 ⎯ DEVELOPMENT OF FP AND FLH SUPPLEMENTAL SPECIFICATIONS

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{REASON: This corrects some typographical errors in Subsection 718.14(g) and also adopts 

CFL’s 6/30/04 recommendation to delete the reference to “FTMS 141 method 6121” in ASTM 

E 1347.} 

3. Each SCG member conducts a multi-disciplinary review of the proposed revision or 

charge within his office and consolidates and circulates comments to the other SCG 

members. 

4. The SCG has three options when revisions and additions are proposed to the FP. It 

may: 

a. Document minor issues related to editorial improvements as editorial quality 

improvements in a marked up copy of the FP maintained by the Construction 

Standards Engineer for future inclusion in the next published edition of the FP; 

b. Recommend that the proposed revision or addition be issued as an FLH 

supplemental specification (see paragraphs 5 through 7); or 

c. Decide that the proposed revision or addition NOT be issued as an FLH 

supplemental specification. These specifications may undergo further review by the 

Divisions. A Division may then decide to adopt the specification as a Division 

supplemental specification and incorporate it into its LOS. 

5. In the case of option b above, the Director of the Office of Program Development will 

usually approve the revision or addition and issue it as an FLH supplemental 

specification in a transmittal sent to the Division Engineers. The transmittal typically 

contains multiple FLH supplemental specifications. 

6. Divisions are responsible for incorporating the FLH supplemental specifications into 

their LOS. 

7. Usually the FLH supplemental specifications will be included in the next published 

edition of the FP. 

2.2 SUBMITTING PROPOSED SPECIFICATIONS FOR SCG CONSIDERATION 

Proposed specification changes should first be submitted through Division’s Specification Team. 

Proposed Supplemental Specification to change the FP may then be submitted to any member of 

the FLH Specification Coordination Group (SCG). In addition to the proposed specification and 

instruction to readers, a statement as to when the specification is to be used should be included. 

Example:

Include the following in projects where Superpave hot asphalt concrete pavement design 

is required. 

Also provide a statement describing why the revision is necessary and include any background 

information as appropriate. 

Example:

REASON: At the May 2005 MTT meeting it was decided that the specifications for 

rotational viscosity and mass loss should be deleted and the specifications for bending 

beam rheometer and direct tension changed. 
CHAPTER 2 ⎯ DEVELOPMENT OF FP AND FLH SUPPLEMENTAL SPECIFICATIONS

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Example: 

When slurry seals or micro-surfacing is required, include the following: (6/4/07) 

Delete the first paragraph of Subsection 410.03 and substitute the following: 

410.03 Composition of Mix (Job-Mix Formula). Furnish a slurry seal or microsurfacing mixture of aggregate, water, emulsified asphalt, or polymer modified asphalt 

and additives according to ASTM D 3910, ISSA A 105, and ISSA A 143. Conform to 

the applicable aggregate gradation in Table 703-8 and the residual asphalt contents in 

Subsection 410.01. 

{REASON: In response to an 4/6/06 format question from Wade Johnson, Brad 

Neitzke reviewed the specification references in Subsection 410.03 and determined 

that the reference to ISSA T 114 should be changed to ISSA A 105 and A 143 as 

described in his 4/10/06 e-mail. This change implements Brad’s recommendation.} 

(FP-03 Metric version, p. 277) 
CHAPTER 2 ⎯ DEVELOPMENT OF FP AND FLH SUPPLEMENTAL SPECIFICATIONS

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Figure 2-2 

Specification Development Process 
CHAPTER 3 ⎯ RESEARCHING AND GATHERING INFORMATION

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CHAPTER 3 ⎯ RESEARCHING AND GATHERING INFORMATION 

The first step in developing a specification is researching the related topic area. The following 

describes resources for gathering information related to both technical topic areas and 

specification writing in general. 

3.1 LIBRARY OF SPECIFICATIONS (LOS). 

To develop specifications, writers should first consult the LOS maintained by their Division. If 

the information they are seeking is not available, the LOS content of other Divisions should also 

be consulted. 

3.2 OTHER SOURCES OF INFORMATION. 

Consider communicating directly with counterparts at other Divisions. It is possible that the 

other Divisions may have developed unique project specifications or have other information that 

could be adapted to meet the needs of the current project. Consult applicable functional 

discipline leader (e.g., materials, geotech, bridge, etc.) to identify any ongoing agency-wide 

initiatives to develop or revise relevant specifications. Field engineers and inspectors can also 

provide insight based on their experience in interpreting and administrating existing specification 

language. 

Personnel from other highway and partner agencies (e.g., Forest Service, National Parks Service, 

etc.) can also provide insight into materials and practices that have worked well under certain 

conditions or at certain locales. 

As an additional resource for specifications, the National Highway Specifications Website, 

accessible at http://www.specs.fhwa.dot.gov, contains the standard specifications from all 

50 state highway agencies and the District of Columbia in one electronically searchable library 

of construction specifications. The website also contains pages dedicated to new and emerging 

technical specifications and innovative contracting provisions. 

Industry and manufacturer’s groups are a likely source of information related to technological 

advancements in materials and equipment. Such developments may require revisions to existing 

specification language. 

Before citing a reference standard in a specification, refer to the issuing organization’s website, a 

current printed copy of the cited standard, or publication to ensure that it is current and 

appropriate for the project. 

The following table provides a list of organizations that issue standards cited in the FLH 

specifications. 
CHAPTER 3 ⎯ RESEARCHING AND GATHERING INFORMATION

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Table 3-1 

Standards Organizations 

Organization (acronym) Website 

American Association of State Highway and 

Transportation Officials (AASHTO) http://www.transportation.org/ 

American Concrete Institute (ACI) http://concrete.org/ 

American Institute of Timber Construction (AITC) http://www.aitc-glulam.org/ 

American National Standards Institute (ANSI) http://www.ansi.org/ 

American Society for Testing and Materials (ASTM) http://www.astm.org 

American Welding Society (AWS) http://www.aws.org/catalogs/ 

Federal Acquisition Regulations (FAR) http://acquisition.gov/far/index.html 

International Slurry Surfacing Association (ISSA) http://www.slurry.org/publications.html 

Master Painters Institute (MPI) http://www.paintinfo.com/mpi/guide/index.htm 

National Electrical Manufacturers Association (NEMA) http://www.nema.org/stds/ 

Underwriters Laboratories http://ulstandardsinfonet.ul.com

U.S. Code http://uscode.house.gov/search/criteria.shtml 

U.S. General Services Administration 

(Federal Specifications) http://apps.fss.gsa.gov/pub/fedspecs/index.cfm 
CHAPTER 4 ⎯ TYPES OF SPECIFICATIONS 

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CHAPTER 4 ⎯ TYPES OF SPECIFICATIONS 

Specifications developed for FLH projects fall into three types. Each type has its own 

advantages that the specification writer should consider when developing project-specific 

requirements. 

4.1 PERFORMANCE OR END-RESULT SPECIFICATIONS. 

The contractor is responsible for supplying an item or a product for construction that meets the 

stated objectives or standards. The specification generally places no restrictions on the materials 

used or the methods of incorporating them into the completed work. 

Example: 

Provide concrete that can withstand a 3,000 pounds per square inch load. 

This example shifts all performance risk for meeting the concrete strength requirement onto the 

contractor. 

Performance specifying is suitable for use when: 

• the end product is measurable; 

• a quick method of testing is available and economical; and 

• potential deficiencies could be corrected by reprocessing or reworking. 

End-result specifications encourage contractor innovation. The contractor may use non-standard 

designs or new technology that could lead to higher quality, or cost or schedule savings. Endresult specifications also allow some technical responsibility to be shifted to the contractor. This 

could be useful if the Government lacks the specialized expertise in a particular area to fully 

specify a product using method specifications. 

4.2 RESTRICTED PERFORMANCE SPECIFICATIONS. 

Specifications prepared for FLH projects are primarily restricted-performance specifications. 

These allow the contractor the fullest possible latitude in obtaining the specified end result. 

However, they contain certain restrictions to ensure an acceptable level of quality and to prevent 

the construction or production of a large quantity of defective work. In most cases, restrictions 

on a performance specification do not relieve a contractor of all responsibility. 

Restricted performance specifications ensure a minimum acceptable quality, while also 

providing the contracting officer with some basis on which to administer the contract and accept 

the work. 

4.3 MATERIALS AND METHODS SPECIFICATIONS. 

Materials and methods specifications (also know as “prescriptive specifications”) specify the 

exact materials and means and methods a contractor must use to construct the work. The 

specification provides detailed descriptions of the materials, equipment, and workmanship 

required. Proprietary names are typically not used. 
CHAPTER 4 ⎯ TYPES OF SPECIFICATIONS 

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Typically, method specifications base acceptance on “reasonable conformance” or “substantial 

compliance” of the work with specified requirements, as established by the Government’s 

supervision and inspection. Pure method specifications do not establish a range of quality levels 

and therefore do not include procedures for price adjustments. 

Example: 

Provide a concrete mix of four parts coarse aggregate, two parts fine aggregate, and 

one part cement with a 0.5 water cement ratio. 

Implied in this example is that the design mix will provide a performance strength of 3,000 

pounds per square inch after 28 days. If concrete conforming to this mix design were supplied, 

but could not withstand a 3,000 pounds per square inch load, the contractor would not be held 

responsible. The specifier assumes the burden of performance when method specifications are 

used. 

Method specifications are most appropriate for the following situations: 

• End product performance is not easily defined or is not easily or economically measured 

and verified. 

• No quick method of acceptance testing is available. 

• It would be impractical to remove and replace defective work. 

Method specifications are typically based on methods that have historically provided satisfactory 

results; therefore, they eliminate the risk associated with newer, less proven methods and the risk 

associated with varying contractor performance. The Government has greater control over the 

work. 
CHAPTER 5 ⎯ WRITING SPECIFICATIONS 

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CHAPTER 5 ⎯ WRITING SPECIFICATIONS 

Specifications are a compilation of directions, provisions, and requirements pertaining to the 

performance of the work. Adherence to the principles described in this guide will help writers 

develop well-written specifications that: 

• are clear, concise, and technically correct; 

• do not use ambiguous words or phrasing that could lead to misinterpretation; 

• clearly define roles and responsibilities; 

• are written using simple words in short, easy to understand sentences and paragraphs; 

• do not repeat requirements stated elsewhere in the contract; and 

• are consistent in terminology, usage, format, and organization. 

Well-written conveying the writer’s exact meaning, leaving no room for other interpretation. 

Composing specifications requires consistent attention to language, organization, format, and 

grammar to ensure specifications provide for fair and equal consideration, with requirements 

conveyed in a clear, concise, correct, complete, and consistent manner. 

Develop specifications that that consider the following: 

1. General formatting. Use short sections which break up material into easily understood 

segments that allow the introduction of headings and white space into otherwise dense 

material. 

Have paragraphs, to the extent possible, limited to one issue. By presenting only one issue in each 

paragraph, writers can use informative headings to reflect the issue conveyed in the paragraph. 

Use short sentences that break up information into smaller, easier-to-process units to convey complex 

information. Long, complicated sentences filled with dependent clauses and exceptions can confuse 

the reader and obscure the main point. Break up complex sentences into a list or individual sentences. 

Clean concise tables or outlines are usually preferable to written specifications. 

2. Proprietary specifications. Be careful when using direct references to proprietary 

specifications of national, regional, or local trade associations (Western Pine Association, 

etc.). Proprietary specifications are subject to change without notice to, or acceptance by, 

FHWA. 

3. Risk and responsibility. Clearly state the contractor’s obligations and known risk. No 

specification should try to get something for nothing from a contractor by concealing its 

intent. Specifications should clearly indicate the responsibility and authority of both the 

contractor and Government (Contracting Officer (CO)). 

Do not specify impossibilities or near impossibilities, or contain unenforceable requirements. 

If ideal conditions cannot be obtained, specify tolerances to allow acceptable variations in the 

work. 
CHAPTER 5 ⎯ WRITING SPECIFICATIONS 

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Specifications should not place all the risk of construction on the contractor. To do so will, 

in all probability, result in high bid prices. Omissions, ambiguities, or inconsistencies in the 

plans or specifications are not the responsibility of the contractor. 

The specification should describe the work with clarity and precision to prevent different 

interpretations by the contractor and the CO. Never include anything in the specification that 

is not expected to be enforced. 

4. Brand Name or Equal specifications. Avoid the use of brand (trade) names in 

specifications and on plans. If possible, write specifications in terms of the desired results to 

ensure full competition among equivalent materials, equipment, and methods. The Federal 

Acquisition Regulations (FARs) do not allow reference in specifications and on plans to 

single trade name materials (also refer to 23 CFR 635.411). In exceptional cases, however, 

the use of trade name designations is acceptable. These cases require a listing of all, or at 

least a reasonable number of, acceptable salient characteristics, materials, or products. 

A project may require a specific material or product, even though other acceptable materials 

and products exist. This is an acceptable procedure if a CO approves the choice as being in 

the public interest. 

5. Incentive and disincentive requirements. Incentive and disincentive requirements may 

be required in order to achieve desired results. They may effect all the contract or the 

contract in part such as in interim completion dates. Incentive and disincentive requirements 

should be coordinated through the CO. 

6. Undefined requirements. The inclusion of requirements beyond what can be measured 

equally by both the contractor and Government can lead to disputes. Requirements that 

involve the “opinion of the CO” cannot be realistically bid as the quality requirements are 

left undefined. 

7. Ambiguous wording. Terms, such as “clean,” are similarly subjective. Instead of stating 

“The concrete surface must be clean,” consider “Broom clean the concrete surface” or 

“Provide a concrete surface free of dirt, grease, oil, or other foreign material.” 
CHAPTER 6 ⎯ SPECIFICATION ORGANIZATION 

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CHAPTER 6 ⎯ SPECIFICATION ORGANIZATION 

6.1 DIVISIONS 

The Standard Specifications are organized into ten divisions, as follows: 

• Division 100 - General Requirements 

• Division 150 - Project Requirements 

• Division 200 - Earthwork 

• Division 250 - Slope Reinforcement and Retaining Walls 

• Division 300 - Aggregate Courses 

• Division 400 - Asphalt Pavements and Surface Treatment 

• Division 500 - Rigid Pavements 

• Division 550 - Bridge Construction 

• Division 600 - Incidental Construction 

• Division 700 - Material 

Each Division has numerous Sections. 

6.2 SECTIONS. 

Sections in the FP are established by the SCG. Added Sections, those not found in the FP, but 

determined to be in the best interest of FLH are established by the FLH Engineers Estimate, 

Bidding, Award, and Construction system (EEBACs) team to coincide with pay items. Proposed 

added sections must be coordinated with Divisional and FLH teams before including in a project. 

With the exception of Division 100 (which consists of general contract requirements for which 

no direct payment is made) and Division 700 (which contains material requirements for which no 

direct payment is made), Sections are organized into the five major headings: 

6.2.1 Description. Contains a concise statement of the work required in the Section. 

Example:

Description 

204.01 This work consists of excavating material and constructing embankments. This includes 

furnishing, hauling, stockpiling, placing, disposing, sloping, shaping, compacting, and finishing 

earthen and rocky material. 

It may also include a list of designations, which may then be specified in the pay items. 
CHAPTER 6 ⎯ SPECIFICATION ORGANIZATION 

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Example: 

Description 

207.01 This work consists of furnishing and placing a geotextile as a permeable separator, 

stabilizer, or permanent erosion control measure. 

Geotextile types are designated as shown in Subsection 714.01. 

Occasionally it may also be used to define terminology specific to the work. 

Example: 

Description 

202.01 This work consists of clearing and grubbing outside the clearing limits specified in Section 201. 

It includes scalloping clearing lines, clearing vistas, thinning vegetation, special clearing and grubbing, 

and the removal of individual trees and stumps. 

202.02 Definitions.

(a) Selective clearing. Clearing where some trees and vegetation is designated to remain. 

(b) Selective clearing and grubbing. Clearing and grubbing where some trees and vegetation is 

designated to remain. 

(c) Special clearing and grubbing. Clearing and grubbing where all trees and vegetation are 

removed. 

(d) Removal of individual trees or stumps. Removing individual trees or stumps outside the 

clearing limits designated in Section 201 or outside areas designated in (a) through (c) above. 

6.2.2 Material. Identifies and describes materials to be use to accomplish the work. 

Usually consists of an alphabetical listing of materials and references in tabular form. 

References are usually made to other sections or subsections within the contract 

specifications, or to applicable specifications for materials published by AASHTO, ASTM, 

and other standards organizations. 

Example: 

Material 

255.02 Conform to the following Section and Subsections: 

Concrete leveling pad 601 

Geotextile type IV 714.01 

Mechanically-stabilized earth wall material 720.01 

Select granular backfill 704.10 

Structural backfill 704.04 
CHAPTER 6 ⎯ SPECIFICATION ORGANIZATION 

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Include the method(s) of sampling and testing and applicable acceptance procedures in the 

acceptance subsection under Construction Requirements, not with the Material requirements. 

6.2.3 Construction Requirements. Describes how work is to be accomplish. Use the 

following guidelines when developing requirements: 

Describes the construction operations, special equipment, controls, limitations, tolerances, 

and acceptance criteria in sequential order. 

Provides sufficient specification requirements to ensure quality of workmanship and 

satisfactory completion of the work. 

To the extent possible, minimizes specific requirements about methods and equipment to 

encourage contractors to apply new and innovative ideas and methods in construction. If 

specifying using performance requirements, describe the required end product. 

Specify allowable tolerances and applied penalties, if any, for exceeding specified tolerances. 

Do not duplicate information already on the plans. 

The last subsection is always used to describe how the work will be accepted. The 

Acceptance Subsection references to one or more of the following four methods of 

acceptance: 

• Subsection 106.02, Visual Inspection; 

• Subsection 106.03, Certification; 

• Subsection 106.04, Measured or Tested Conformance; or 

• Subsection 106.05, Statistical Evaluation of Work and Determination of Pay 

Factor (Value of Work). 

Example: 

502.12 Acceptance. See Table 502-1 for sampling and testing requirements. 

Material for rigid concrete pavement restoration will be evaluated under Subsections 106.02 and 106.03. 

Furnish a production certification for the hydraulic cement. 

The concrete mixture's slump, air content, unit mass, and temperature will be evaluated under 

Subsections 106.02 and 106.04. 

The concrete compressive strength will be evaluated under Subsection 106.04. The lower specification 

limit is the minimum required compressive strength at 28 days (fc') specified in Table 501-1. A single 

compressive strength test result is the average result from two cylinders cast from the same load and 

tested at 28 days... 

Most Sections summarize sampling and testing requirements in a table. 
CHAPTER 6 ⎯ SPECIFICATION ORGANIZATION 

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Example: 

Table 301-1 

Sampling and Testing Requirements 

Material or 

Product 

Type of 

Acceptance 

(Subsection) 

Characteristic Category Test Methods 

Specifications 

Sampling 

Frequency 

Point of 

Sampling 

Split 

Sample 

Reporting 

Time 

LA abrasion 

(coarse) — AASHTO T 96 

1 per type & 

source of 

material 

Source of 

material 

Yes, when 

required 

Before using 

in work 

Sodium sulfate 

soundness loss 

(coarse & fine) 

— AASHTO T 104 " " " " 

Durability index 

(coarse & fine) — AASHTO T 210 " " " " 

Aggregate 

source quality 

703.05(a) 

Measured and 

tested for 

conformance 

(106.04 & 105) 

Fractured faces — ASTM D 5821 " " " " 

Gradation 

No. 4 I 

No. 200 I 

Subbase 

courses 

grading A & B 

Statistical 

(106.05) 

Other specified 

sieves II 

AASHTO T 27 & 

T 11 

1 per 1000 

tons 

From 

windrow or 

road bed 

after 

processing 

Yes 4 hours 

6.2.4 Measurement. Describes how items of work are to be measured. Include the standard 

language: 

Measure the Section XXX items listed in the bid schedule according to Subsection 109.02. 

Example: 

Measurement 

260.09 Measure the Section 260 items listed in the bid schedule according to Subsection 109.02. 

If there are additions or exceptions to the measurement terms and definitions used in Subsection 

109.02, use the standard language: 

Measure the Section XXX items listed in the bid schedule according to Subsection 109.02 

and the following as applicable. 
CHAPTER 6 ⎯ SPECIFICATION ORGANIZATION 

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Example: 

Measurement 

308.07 Measure the Section 308 items listed in the bid schedule according to Subsection 109.02 and the 

following as applicable. 

Measure crushed aggregate by the cubic yard in the hauling vehicle. 

Measure square yard width horizontally to include the top of aggregate width including designed 

widenings. Measure the square yard length horizontally along the centerline of the roadway. 

6.2.5 Payment. Describes how the Government will pay for measured items. Include the 

standard language: 

The accepted quantities will be paid at the contract price per unit of measurement for the 

Section XXX pay items listed in the bid schedule. Payment will be full compensation for 

the work prescribed in this Section. See Subsection 109.05. 

Specify pay items with unit bid prices that are subject to adjustment under Subsection 106.05 

as exceptions in the above paragraph. The subsection may also need to describe the method 

for adjusting the contract unit bid price. 

Example: 

Payment 

401.19 The accepted quantities will be paid at the contract price per unit of measurement for the Section 

401 pay items listed in the bid schedule except the Superpave hot asphalt concrete pavement contract unit 

bid price will be adjusted according to Subsections 106.05 and 401.16. Payment will be full 

compensation for the work prescribed in this Section. See Subsection 109.05. 

Payment for Superpave hot asphalt concrete pavement will be made at a price determined by multiplying 

the contract unit bid price by the material pay factor. The material pay factor is calculated as follows... 

Subsection 109.05, Scope of Payment, includes the general rules for measurement and 

payment of work. There is no need to restate these rules in each individual Section. 

However, all exceptions or needed clarifications of these rules should be stated in the 

Measurement or Payment subsections of the individual section. 
CHAPTER 7 ⎯ DEVELOPING SPECIAL CONTRACT REQUIREMENTS 

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CHAPTER 7 ⎯ DEVELOPING SPECIAL CONTRACT REQUIREMENTS (SCRS) 

Assembly of SCRs is usually the responsibility of the Designer. Consider the following when 

developing SCRs: 

1. Review LOS for applicable SCRs. The LOS has instructions for when to use many of the 

specifications for a particular project. Begin developing SCRs by selecting all specifications 

applicable to a given project in the LOS. 

2. Review the SCRs for similar past projects. Often there have been past projects with similar 

work. The SCRs for these projects should be reviewed for any unique project specifications that 

are also applicable to the new project. If your division has not done a similar project in the past, 

other FLH Divisions or other highway agencies may have projects that can be reviewed. 

3. Develop unique project specifications. Occasionally there is work on a project that is unique 

to that project. In this case a unique project specification will need to be developed and inserted 

into the SCRs. Do not develop new or “Added Section” without first coordinating with your 

divisional EEBACS representative. Check the EEBACS pay item table to see if work fits within 

items already established in a Section. Unique project specifications should be well-written 

according to the principals presented in this PDDM chapter and the Specifications Writer’s 

Guide. Assistance maybe required or entire specification written by technical specialist (e.g. 

Hydraulic, Geotechnical or Materials engineers). 

4. Review pay items to ensure work is described, accepted, measured, and pay for under the 

standard specifications and SCRs. 

5. Review the SCRs and Referenced Specifications. Once complete, SCRs need to be 

thoroughly reviewed to ensure coordination with the plans, standard specifications, and 

referenced specifications. 
CHAPTER 8 ⎯ COORDINATION OF PLAN NOTES AND SPECIFICATIONS 

19

CHAPTER 8 ⎯ COORDINATION OF PLAN NOTES AND SPECIFICATIONS 

In preparing plans and specifications, the question often arises as to whether a particular 

instruction should be placed in the specifications, shown in the form of notes on the plans, or 

both. 

Information should not be included in both the specifications and the plans. Covering 

requirements in multiple places could lead to ambiguities or conflicts, especially if information is 

changed in one location but not the other. 

Plan notes should be used when it is necessary to communicate and clarify information that 

cannot be shown by a particular plan or detail alone. This is often the case if the instructions 

apply to only one particular item. For example, if only one connection requires a high strength 

bolt, a note to that effect should be placed beside the detail for that connection. If instead, all

field connections are to be high-strength bolts tightened to a specific tension, this information 

would be better suited to a specification, as it would then be unnecessary to repeat this 

information on all affected plans. 

Plan sheets are also often the most appropriate place to highlight information (e.g., references to 

existing underground utilities, dimensional clarifications, work zone limitations related to noise 

or dust, locations of suitable soil, etc.) that could otherwise go unnoticed if buried in a 

specification. 

Permitting agencies may also require the inclusion of certain notes on the plans. For example, 

agencies issuing NPDES permits often require the plans to include such items as the total area of 

disturbance, characteristics of the in situ soil, and the design capacity and associated 

maintenance schedule for erosion and sedimentation control measures. In this case, it would be 

important to verify that the associated soil erosion control specification does not duplicate or 

conflict with the requirements already shown on the plans. 

Plan notes should not be used to revise the standard specifications. Revisions to the FP should 

instead be handled through SCRs. 
CHAPTER 9 ⎯ SPECIFICATION REVIEW AND EVALUATION PROCESS 

20

CHAPTER 9 ⎯ SPECIFICATION REVIEW AND EVALUATION PROCESS 

In addition to technical accuracy and applicability to the project, specification reviewers should 

also evaluate the overall readability and clarity of a specification. 

1. Continuity of Thought and Logic. Check continuity of information and thought 

throughout each section of the specification. Ensure that the information is presented in a 

logical, step-by-step manner, with sentences and paragraphs limited to single ideas. 

2. Method of Presentation and Overall Organization. Review and evaluate the 

sequence of the information and requirements to ensure clarity and continuity of thought. 

Ensure that the information is arranged and presented in a manner that makes locating 

information easy. 

3. Clarity of Measurement Procedures. Provide a clear description of what is to be 

measured for payment and the method of measurement. 

If a method of measurement cannot be defined, the need for measurement should be 

questioned. Without a definitive method, the possibility for multiple interpretations 

could lead to conflicts over the measurements taken. 

The specification should also clearly address where and when the measurement is to be 

made. If sequential measurement and approval actions will be necessary, the sequence 

should be clearly identified. 

To the extent necessary, the specification should also describe responsibilities regarding 

removal and replacement of defective work or acceptance of reduced payment. 

4. Coordinating Information and Requirements. To ensure that requirements do not 

create conflicts or ambiguities, review the specifications with the following questions in 

mind: 

• Are specifications current and applicable to the specific project? 

• Will the contractor understand the language? 

• Do requirements conflict with existing language in the FP? 

• Do requirements duplicate or conflict with information shown on the plans? 

• Do specifications satisfy all state, county, and local requirements and permit 

conditions (e.g., NPDES permits) 

• Are requirements consistent with FLH policies? 

To ensure total coordination of work-related technical requirements with administrative 

requirements, the specification writers and reviewers should become thoroughly familiar 

with the General Requirements (Division 100 of the FP). 

5. Obtain Feedback. A good guide for determining the success of an existing 

specification is to review the bid tabulations for the item in question. When the range of 

bidding is close, it indicates that all contractors are reading the specification in the same 
CHAPTER 9 ⎯ SPECIFICATION REVIEW AND EVALUATION PROCESS 

21

context. Conversely, a wide range of bidding may indicate confusion and ambiguity in 

the specification that calls for a rewrite. 

Similarly, if a specification generates numerous requests for information, change orders, 

or claims on a particular project, a revision may also be necessary. 
CHAPTER 10 ⎯ ADDITIONAL RESOURCES 

22

CHAPTER 10 ⎯ ADDITIONAL RESOURCES 

The information included in this document constitutes the FLH’s approved guidelines for matters 

of writing style, organization, format, terminology and phrasing, and related drafting conventions 

for specifications. Additional resources are available as follows: 

10.1 STYLE GUIDES. For authoritative general information, including format, style, and 

word and number usage. 

• The Chicago Manual of Style 15th Edition. Chicago: University of Chicago Press, 

2003; 

• Federal Lands Highway Style and Operational Guide for PDDM, A&E, and other 

Technical Manuals. Washington: Federal Highway Administration, 2006; 

• United States Government Printing Office Style Manual 2000, 29th edition. 

Washington: U.S. Government Printing Office (GPO), 2000. 

http://www.gpoaccess.gov/stylemanual ; 

• FHWA Publications and Printing Handbook. Washington: Federal Highway 

Administration, 2004; and 

• FHWA Communications Reference Guide. Washington: Federal Highway 

Administration, 2004. http://www.tfhrc.gov/qkref/qrgmain.htm 

10.2 TECHNICAL WRITING RESOURCES. For general guidance on technical writing 

consult: 

• http://www.plainlanguage.gov 

• Garner, Bryan A. A Dictionary of Modern American Usage. New York: Oxford 

University Press, 1998. 

• The Elements of Style. Strunk, William Jr., and E.B. White. 4th ed. Boston: 

Allyn & Bacon, 2000 

10.3 SPECIFICATION WRITING RESOURCES. For guidance specific to writing highway 

construction specifications, the National Highway Institute (NHI) offers a course on the

Principles of Writing Highway Construction Specifications. In addition, FHWA has published 

Technical Advisory T5080.16 – Development and Review of Specifications.