In construction, a submittal is a document, drawing, or physical sample that the contractor sends to the architect, engineer, or owner for review before materials are ordered or work begins. It confirms that the contractor’s proposed products, equipment, and fabrication methods match what the contract and design drawings call for. So when people ask what does submittal mean in construction, the short answer is a formal pre-approval package that proves conformance before anything gets built.
The idea is simple. The contractor assembles the detailed information — manufacturer specifications, shop drawings, material samples, calculations — and routes it to the design professional for verification. Federal construction contracts spell the obligation out directly: the contractor must prepare and submit everything specified in the contract or requested by the contracting officer, which can include safety plans, schedules, shop drawings, coordination drawings, samples, calculations, product information, or mockups.1Acquisition.GOV. GSAM 552.236-72 Submittals
Why the Submittal Step Exists
Reviewing proposed materials and fabrication details on paper catches problems while they are still cheap to fix. If a steel connection a contractor plans to fabricate does not line up with the engineer’s design, finding that out before the steel is cut and shipped saves weeks and real money. The review also creates a documented record of compliance. If a dispute surfaces later about whether the installed work matched the specifications, the approved submittal package is the evidence.
Industry-standard contracts like AIA Document A201 (Section 3.12) and the General Services Administration’s GSAM clause 552.236-72 both govern this process, though private and government projects handle the details differently. One point is consistent across contract forms: the reviewer’s approval is limited in scope. It confirms general conformance with the design intent and does not relieve the contractor of responsibility for errors or deviations from the contract documents.1Acquisition.GOV. GSAM 552.236-72 Submittals
Action Submittals and Informational Submittals
Submittals fall into two groups based on what the reviewer is expected to do.
Action submittals require a formal decision — approved, approved with changes, or rejected. Shop drawings, product data sheets, and material samples are typical examples. Work on the related item cannot start until the reviewer responds.
Informational submittals go to the reviewer for the record, not for approval. Certificates of insurance, independent lab test reports, and some warranty documents usually fall here. The design professional files them without taking formal action.
The contract specifications identify which category each submittal belongs to. Treating an action submittal as informational — ordering materials before a response comes back — exposes the contractor to the risks described at the end of this article.
Common Types of Submittals
Shop Drawings
Shop drawings are detailed diagrams showing how specific components will be fabricated or installed. They go further than the architect’s design drawings, with precise measurements, assembly sequences, and connection details for items like steel framing, ductwork, or cabinetry. On federal projects, shop drawings can include fabrication and erection drawings, manufacturer scale drawings, wiring and control diagrams, catalogs, and performance and test data.1Acquisition.GOV. GSAM 552.236-72 Submittals
Product Data
Product data submittals include manufacturer specifications, performance charts, installation instructions, and brochures for standardized equipment. When the contract calls for a specific HVAC unit or electrical panel, the product data sheet confirms the proposed equipment meets the required power ratings, efficiency levels, and physical dimensions. These matter most for mechanical and electrical systems where performance tolerances are tight.
Samples
Physical samples let the design professional inspect actual materials — paint swatches, carpet textures, masonry finishes, countertop surfaces. A sample confirms color, texture, and quality in a way a photograph or spec sheet cannot. Approved samples often become the benchmark against which installed materials are later compared.
Test Reports and Certifications
For structural and safety-critical materials, the contract may require third-party laboratory test reports or manufacturer certifications. These verify that a material’s chemical and physical properties, such as tensile strength, yield strength, or fire resistance, meet the applicable ASTM or AASHTO standards. Concrete mix designs, steel mill certifications, and fireproofing test results are common examples.
Delegated Design Submittals
Some elements are designed not by the architect or engineer of record but by a specialist working for the contractor. Curtain wall systems, fire suppression layouts, and pre-engineered metal buildings often use this arrangement, called delegated design. The architect sets the performance criteria, and the contractor’s licensed design professional prepares and seals the design documents. The architect then reviews the sealed submittal for general conformance with the project’s overall design intent.
Sustainability and LEED Documentation
Projects pursuing green building certifications like LEED require specialized submittal data: recycled material content, volatile organic compound levels in paints and adhesives, or energy performance calculations. The U.S. Green Building Council requires teams to submit the documentation specified in the LEED reference guides for each credit being pursued, and any supplemental calculations should be uploaded in a format the reviewer can adjust.2U.S. Green Building Council. Documenting Certification Compliance
What Goes Into a Submittal Package
A complete package needs precise technical data for each proposed item: manufacturer name, model number, physical dimensions, and relevant performance characteristics such as weight, voltage, thermal resistance, or load capacity. Missing or incorrect information is one of the most common reasons submittals come back for revision, so cross-referencing every detail against the contract documents before sending saves time.
Most projects use a standardized cover sheet that identifies the project name, specification section number, submittal number, and contractor contact information. The project manual or the design professional’s office usually provides the form. The cover sheet is the routing slip, telling the reviewer which part of the contract the submittal addresses and tracking the submission through approval.
When the work involves hazardous materials such as certain adhesives, sealants, coatings, or solvents, Safety Data Sheets belong in the package too. OSHA’s Hazard Communication Standard requires chemical manufacturers and importers to provide a 16-section Safety Data Sheet for each hazardous chemical, and employers must keep these sheets accessible to workers on site.3OSHA. Hazard Communication Standard: Safety Data Sheets Including them ensures the design team and owner know what hazardous materials are entering the project.
Timing and Long-Lead Items
Under standard industry contracts, the contractor must prepare a submittal schedule shortly after being awarded the contract. The schedule coordinates with the overall construction schedule and gives the design team enough time to review each submittal before related work needs to begin.
Long-lead items deserve the earliest attention. Materials with extended manufacturing or delivery times — window systems, electrical transformers, elevators, precast concrete elements, custom flooring — need their submittals processed first. Holding a custom curtain wall submittal until the same time as a paint color sample can delay fabrication by weeks or months.
AIA A201 does not set a fixed number of calendar days for review. The architect’s response follows the submittal schedule the contractor and architect agreed on at the start of the project, or, if no schedule exists, proceeds with reasonable promptness. On federal projects, the contractor is entitled to receive notice of action within a reasonable time based on the volume and complexity of the submittals and how critical the affected work is to the schedule.1Acquisition.GOV. GSAM 552.236-72 Submittals Many project specifications do set a fixed review window, often between 10 and 21 calendar days, but that comes from the individual contract, not from a universal standard.
What the Review Stamps Mean
After reviewing a submittal, the design professional applies a stamp indicating the decision. The four common designations are:
- Approved. The submittal conforms to the design intent. The contractor can order materials and perform the related work.
- Approved as Noted. The submittal is acceptable, but the reviewer has marked minor corrections. Work can proceed as long as those changes are incorporated.
- Revise and Resubmit. Significant problems need to be corrected. The contractor must fix the issues and send the package back through review before proceeding.
- Rejected. The submittal does not conform to the contract requirements. The contractor needs to start over, often with a different product or approach.
Each revise-and-resubmit or rejection adds time to the schedule. Some contracts allow the design professional to charge the contractor for reviewing third or subsequent resubmissions, with hourly rates that vary by firm and region.
The Risks of Getting It Wrong
The most consequential mistake is proceeding with work before the submittal has been reviewed. Under federal construction contracts, any work or activity undertaken before the submittal is reviewed is entirely at the contractor’s risk. If the contracting officer later determines the work does not comply with the contract, the contractor bears all cost and time needed to fix it, and the contracting officer can order the contractor to stop work on any item whose submittal has not been reviewed.1Acquisition.GOV. GSAM 552.236-72 Submittals Private-sector contracts contain similar provisions.
Even an approved submittal does not shift responsibility. The reviewer’s approval confirms general design-intent conformance, not that every measurement and detail is correct. If a shop drawing goes out with an incorrect dimension and the reviewer misses it, the contractor is still liable for the rework. The review is a limited check, not a guarantee.
Repeated rejections carry risk beyond schedule delay. In construction disputes, the number of rejected submittals can be used as a measure of contractor performance. A pattern of incomplete or non-conforming submittals creates a documentary record that opposing counsel can point to as evidence of poor workmanship. Treating the submittal process as a substantive quality-control step, rather than a formality, usually costs far less than defending against that record later.