Subject: CONSTRUCTION MEMORANDUM NO.

4
Contract Changes
Articles 104.02 and 109.04 Effective: September 10, 2020
Expires: Indefinitely

This memorandum supersedes Construction Memorandum No. 7-4 dated January 23,
2017.
This memorandum provides the procedures by which highway construction contract
changes will be administered, as well as the circumstances under which such changes
will be permitted. These procedures are designed to ensure compliance with the letter
and spirit of all applicable laws, to foster proper administration of the provisions of all
Department-let highway construction contracts in accordance with accepted legal
principles, and to avoid disputes that can arise when it is necessary to modify the terms
of a highway construction contract. These procedures apply to all contracts that are let
by the Department of Transportation. It should be noted, that for the purpose of this
memorandum, the term “changes” includes change orders and adjustments.
A contract change is one of the most important aspects of contract administration. By
definition, it alters the contract work from that awarded under the competitive bidding
process and, therefore, requires clear explanation and careful consideration. The
approval of the Regional Engineer on such an order (BC 22), Authorization of Contract
Changes, signifies complete review of and support for the change proposed.
The applicable state laws are the Illinois Procurement Code (30 ILCS 500), the State
Finance Act (30 ILCS 105/9.02) and the Criminal Code (720 ILCS 5/33E). The
Secretary of Transportation and the Director of Highways have directed further changes
in procedure both to bring the Department into conformance with the laws and to better
enable the Department to administer contract changes (Departmental Order 2-2,
Signature Authority).
Basic Requirements
• All contract changes must be germane to the original contract.
• On a limited basis, Small Purchases may be approved by the Central Bureau of
Construction and paid for under an existing contract.
• All extra work must be approved and directed in writing before the work begins.
The method of payment should be determined prior to beginning any extra work.
• The written approval of a contract change and the written directive to the
contractor may or may not be the same document. The approval or the directive
can be in the form of an e-mail, Resident's memo, form BC 2256 (Prior Approval
Authorization of Contract Change), form BC 22 (Authorization of Contract
Changes) or other written instrument (paper or electronic), as appropriate.
• The contract change must be approved by a person who has direct or delegated
authority to approve the type, scope or value of the work involved in the change.
Construction Memorandum 4 September 10, 2020
Page 2 of 21

• The written approval for a contract change must include a determination that the
work is germane to the contract, and the reasons for this germaneness
determination.
• Ordinarily, emergency purchases / contracts are procured as outlined at
https://www.ilga.gov/commission/jcar/admincode/044/044000060C01200R.html.
However, in case of an immediate hazard to public safety, the Resident is granted
limited authority to initiate work if immediate action is necessary.
• Contract changes for individual extra work efforts greater than $100,000 must be
published in the Transportation Bulletin on the Internet. An extra work effort is
comprised of all the work, paid under one or more new or existing pay items,
necessary to accomplish the goal of the extra work. To the extent practical, the
districts are asked to submit a separate BC 22 for each extra work effort that
requires publication. The Central Bureau of Construction will not try to dissect the
items on the BC 22. Instead, the relevant information treated as a whole, will be
published.
• Contract changes greater than $100,000 must also be reviewed by the
Procurement Policy Board (PPB). The BC 24 (Request for Procurement Policy
Board Waiver) is to be submitted to the Central Bureau of Construction to provide
the information in the format agreed to by the PPB. Certain changes require the
waiver prior to beginning the work.
• The delegated authority to approve contract changes is in relation to the entire
work effort involved in the change. A work effort may involve payment under
several different pay items. The delegated authority levels are for the net value of
a work effort, including both additions and deductions to the various pay item
quantities involved in the changed work effort.
• Residents will assign a two-digit code number to each authorization line item, to
categorize the type of change involved in the line item. This requirement applies
primarily to State projects. For Local Agency projects, there is a single category
code (33) that is to be used for all contract changes. (See Attachments 1 & 2)
Change Order - Contract Adjustment

44 Administrative Code Part 6 provides the following definitions:

Change Order – A change in a contract term, other than as specifically provided for in
the contract, which authorizes or necessitates any increase or decrease in the cost of
the contract or the time for completion for procurements subject to the jurisdiction of the
Chief Procurement Officers appointed pursuant to Section 10-20. (Section 1-15.12 of
the Code)
Contract Adjustment – A written price adjustment that adds to or deducts from a
contract in accordance with provisions included in the original contract, including but
not limited to increases or decreases in quantities, incentives, changed conditions and
the addition of missing pay items called for in the specifications.
In the past, the terms change order and authorizations have been used
interchangeably. To help administer contract changes, the terms change order and
contract adjustment will be used as defined above. The term authorization is used
more generically to refer to all the contract changes and adjustments submitted on a
Construction Memorandum 4 September 10, 2020
Page 3 of 21

BC 22. See the Procurement Policy Board section for further discussion on Change
Orders and Contract Adjustments.
Major and Minor Changes

It is the policy of the Department to require the approval of the Central Bureau of
Construction prior to a commitment for all major changes in the plans or contract
provisions. The prior approval of the Federal Highway Administration is required for all
major changes on projects that are currently considered Projects of Division Interest
(PoDI) and/or Projects of Corporate Interest (PoCI).
A. Major is considered to apply to any contract change that:
1. Revises the alignment or typical section of the mainline roadway, ramps,
frontage roads or crossing areas.
2. Revises the access control (either temporary or permanent).
3. Accelerates work on the project involving payment for premium time or loss
of productivity (or involving other forms of acceleration e.g., winter protection
of concrete) greater than $20,000 per contract.
4. Revises the staging of construction or the traffic control plan and reduces
the number of lanes open to traffic or otherwise impacts traffic flow or traffic
patterns.
5. Changes the limits of the project or adds omitted work.
6. Impacts a protected environmental resource or modifies an environmental
commitment such that follow-up coordination is required with the affected
entities.
7. An extra work effort at contract unit prices, agreed unit prices or force
account methods that equals or exceeds a total cost of $250,000.
8. Contract Claims filed in accordance with Article 109.09. (See Construction
Manual – Guidelines for Review of Contract Claims)
9. Changes the Method of Measurement or Basis of Payment for an item of
work.
10. Small Purchases procured in accordance with 44 Administrative Code Part
6 Section 6.100(b) (i.e. the Department’s Procurement Rules). (Small
Purchases will not require prior approval from FHWA on PoDI / PoCI
projects)
B. Minor is considered to apply to any contract change that is:
1. An adjustment in unit prices, less than $250,000, specifically required by the
Standard Specifications or a Special Provision; (a traffic control price
adjustment is one example).
Construction Memorandum 4 September 10, 2020
Page 4 of 21

2. An extra work effort that is to be accomplished at contract unit prices,

agreed unit prices, force account or a combination thereof that does not
classify as Major and will not result in a total cost equal to or exceeding
$250,000. Again, to the extent practical, the districts are asked to submit a
separate BC 22 for each extra work effort. The Central Bureau of
Construction will not try to dissect the items on the BC 22. Instead, the
authorization’s net change will be treated as a whole when classifying an
authorization as a major or minor.
3. Adjusting contract quantities to final as-built quantities.
4. Acceleration of work on the project costing $20,000 or less per contract.
Approval Procedures

The Criminal Code and the Illinois Procurement Code both include provisions that
require documentation of prior approval, depending on the nature and value of the
change and the value of the original contract. The State Finance Act contains
additional approval requirements governing higher value changes.
These provisions have created a complex web affecting the addition of work to a
contract and the payment for that work. From the perspective of the contractor, proper
and timely approval facilitates lawful and timely payment.
Therefore, in order to assure compliance with Illinois and Federal law, the Department's
Determination to protect the public interest, and the expeditious prosecution of the
work, the following requirements are established to be followed in approving all contract
changes (see also Departmental Order 2-2):
1. All extra work must be approved in writing and a copy provided to the contractor
before the work is begun. When the written approval is in paper form the
approval must include the signature of the person who approved the change.
When the written approval is electronic a written signature is not required. In
addition, the person granting the approval must have direct or delegated authority
to approve such a change. The written approval must also include a description
and reason for the change, a statement that the change is germane and a
description of why the change is germane (unless an Emergency Purchase
Affidavit is filed).
2. The Resident is directly authorized to verbally or by action (i.e. layout) approve
and direct additional quantities to contract pay items, when the quantities can be
considered balancing. The Resident is not directly authorized to approve
additional quantities if there is a significant discrepancy in the plan quantities, or
the amount is greater than $20,000.
When verbal approval is given for balancing quantity adjustments, the Resident
should submit these quantities on form BC 22, Authorization of Contract Changes,
in a timely basis as needed to ensure timely payment to the contractor for
significant additions. The original contract documents serve as the written
authorization to the contractor to proceed, so no separate written directive to the
contractor is needed.
Construction Memorandum 4 September 10, 2020
Page 5 of 21

3. The Regional Engineer has the authority to approve minor changes less than
$250,000. The levels of delegated authority for minor contract changes on
projects are as follows:

Implementation Engineer $150,000

Construction Engineer $100,000
Supervising Field Engineer $40,000
Resident Engineer or Technician $20,000

All delegations listed above are mandated down to the level of Residents. The
Regional Engineer may delegate additional authority above these minimum
levels.
For such added work, the district may proceed with the added work prior to
submitting the BC 22 to the Central Bureau of Construction. However, change
orders greater than $100,000 require the Procurement Policy Board’s waiver prior
to work beginning (as noted later). The BC 22 will indicate that this is a minor
addition. The Regional Engineer’s (or their designee’s) approval of the BC 22 will
be accepted as approval of the work. An approved BC 22 should be submitted as
soon as possible to the Central Bureau of Construction. All district approvals shall
comply with the law, the contract and Department policy.
4. The Engineer of Construction is authorized to approve change orders to expedite
or accelerate the construction work (Major Change) up to a value of $250,000.
5. The Engineer of Construction is authorized to approve payment of “small
purchase” work under an existing contract.
6. The Engineer of Construction is authorized to approve claim settlement offers up
to a value of $250,000.
7. In accordance with Departmental Order 2-2, Signature Authority, the Secretary
must approve all changes resulting in a net addition of $250,000 or more.
Finance Code Requirements:
In accordance with the State Finance Act and Departmental Order 2-2, when a single
or cumulative contract change results in a net change that is equal to or greater than
$250,000 in a fiscal year, before funds may be obligated for such a change, the BC 22
must have the approval of the Secretary, Chief Fiscal Officer, Chief Counsel and the
Chief Procurement Officer for the Department’s construction and construction related
procurements. (These same approvals are required for contracts having an awarded
amount of less than $250,000, if / when cumulative changes result in an adjusted
contract value becoming equal to or greater than $250,000.)
The Central Bureau of Construction will coordinate with the executive officers to obtain
these approvals. It is understood that these approvals may be obtained after the work
has already been ordered, when the BC 22 includes only minor changes approved at
the district level. The Central Bureau of Construction will obtain these approvals, when
applicable, for all major changes before the work is approved.
Coordination with FHWA:
By agreement, the Federal Highway Administration (FHWA) reviews all authorizations
of contract changes on selected contracts identified as a PoDI or PoCI, and other
contracts that may be required by the Oversight Agreement. Currently, the FHWA is
Construction Memorandum 4 September 10, 2020
Page 6 of 21

developing new procedures for their oversight of the Department’s construction

program. The FHWA is no longer identifying new contracts as a PoDI or PoCI. The
FHWA last provided a PODI/POCI project list in federal Performance Year 2019 (PY
19). All contracts identified on that list shall be administered according to the following
procedures. Questions about the list of active PoDI or PoCI projects can be directed to
the Central Bureau of Construction.
The FHWA’s prior approval is required for major changes. The FHWA’s prior approval
is not required for minor changes. It is recognized that some additions exceeding
$250,000 may, by their nature, not require prior approval. These additions include
Balance Final Field Measurements (category code 01), Allowable Contingencies
(category code 03), and Specification Performance Adjustments (category code 16) for
which the work and the method of payment is included in the contract.
The district should keep the FHWA Transportation Engineers (TEs) aware of pending
major changes during project visits or through telephone calls or e-mails.
Authorization Approval Process:
The Resident Engineer prepares a BC 22 and requests additional District Office review
and approval. Upon obtaining the District approval, the District submits the BC 22 to
the Central Bureau of Construction for additional approvals (if applicable) and
processing. When central office or FHWA approvals are required, the Central Bureau
of Construction will coordinate obtaining these approvals. When FHWA approval is
required, the FHWA TE will notify the Central Bureau of Construction in writing (paper
or electronic) whether or not the change is approved for federal participation.
Prior Approval Process:
For work efforts requiring central office or FHWA prior approval, the Resident Engineer
prepares a BC 22 (or BC 2256) and requests additional District Office review and
approval. Upon obtaining the District approval, the District submits the BC 22 (or BC
2256) to the Central Bureau of Construction for additional approvals and processing.
The Central Bureau of Construction will coordinate obtaining these approvals. The
Central Bureau of Construction will notify the District when the needed approvals are
obtained so that the added work may proceed. The required FHWA prior approvals
must be in writing (paper or electronic) and included on or attached to the BC 22 (or BC
2256).
The BC 2256 is primarily intended for use when prior approval is required but
insufficient time exists to fully prepare a BC 22 before starting the approval process. If
a BC 2256 is used to obtain the prior approval. A BC 22 must still be submitted as
soon as practicable. The approved BC 2256 must accompany the BC 22 for
processing as per the approval process described above.
Local Agency Contracts Awarded by the Department

The laws noted above apply to State-let local agency projects as well as State
contracts. Residents on local agency projects must coordinate carefully with the
districts to ensure that any changes made to a contract are within the limits prescribed
by the laws. Delegation of approval authority will be discussed with the local agency
Resident at the preconstruction conference.
Failure to follow the procedures in this memorandum could result in the loss of State or
Federal-Aid participation in the cost of the project.
Construction Memorandum 4 September 10, 2020
Page 7 of 21

The district will obtain the local agency’s approval of major changes and added work
prior to approving a BC 22. This will afford the local agency the opportunity to
determine that the necessary funding is available and that the completed project will be
acceptable for maintenance.
Environmental Commitments

When a change on any project, regardless of project funding or highway system,

modifies an environmental commitment or permit requirement, it will be necessary to
have the District Environmental Coordinator, and the central Bureau of Design and
Environment as appropriate, reevaluate the continuing validity of the environmental
document. The reevaluation shall be coordinated, as necessary, with affected
agencies to determine the acceptability of the proposed change and the need for
mitigation, prior to implementing the change. When the reevaluation indicates a
change in the impacts evaluated in an approved federal environmental document, prior
approval of the Federal Highway Administration (FHWA) will also be required. Changes
to permit requirements will be coordinated with the permitting agency.
Transportation Bulletin

The Procurement Code and the rules promulgated under this Code require that all
contract changes for which the value of the extra work effort is greater than $100,000
must be published in the Department's volume of the Illinois Procurement Bulletin.
IDOT's volume is called the Notice of Contract Awards Transportation Bulletin. For
germane contract changes, the publication of this information will be coordinated by the
Central Bureau of Construction. However, in order to comply with the disclosure
requirements and time limits of the law it is essential that the districts submit all the
necessary information with the authorization in a timely manner.
The Central Bureau of Construction will submit for publication the following information
from an authorization:
• Contract Number
• Project description. The description will be the one published in the Transportation
Bulletin and will be obtained from the Bureau of Design & Environment after the
contract is let.
• The name of the prime contractor.
• Description and reason for the change. This will be copied in its entirety directly
from the BC 22 submitted by the district.
• Net Change shown on the BC 22.
• Determination statement that the change is germane, and the reason why it is
germane. This will be copied from the BC 22 submitted by the district.
Construction Memorandum 4 September 10, 2020
Page 8 of 21

Procurement Policy Board

On July 30, 2004 legislation was enacted establishing the Procurement Policy Board
(PPB). One of the functions of the PPB is to provide oversight of the procurement of
construction activities. As a result, all Authorizations resulting in an increase to the
contract greater than $100,000 require the review and waiver from the PPB. The BC
24 (Request for Procurement Policy Board Waiver) is to be submitted to the Central
Bureau of Construction to provide the information in the format agreed to by the PPB.
Change Orders require a waiver prior to beginning the work. Change Orders include
plan omissions, design changes, acceleration and other germane additions for which
no provision is included in the original contract. (Category Codes 9, 19, 28 and 30)
Contract Adjustments do not require a waiver prior to beginning the work. Contract
Adjustments, which would include balancing, incentives and other additions for which
both the work and the method of payment are included in the contract as well as
additions for missing pay items where the work was included in the plans, plan errors,
plan quantity errors and differing sight conditions. (Category Codes 1, 3, 12, 16, 22, 24,
26, 29, and 85)
Authorizations resulting in a net change of $100,000 or less, regardless of Category
Code are not required to be submitted to the PPB.
Authorizations with the Category Codes 33 may or may not be considered
Change Orders. These Authorizations should be examined on a case by case basis.
On Local Agency projects, Category Code 33, the Local Agency will be responsible for
making the determination of a Change Order . If the determination is not readily
apparent, consult the District Office or Central Bureau of Construction.
When determination is made that an Authorization (BC 22) or Prior Approval (BC 2256)
will be in excess of $100,000, the Resident Engineer, District Office, or Local Agency
will submit the BC 24 to the Central Bureau of Construction. CMMS and ICORS users
can transmit the information electronically. For non-CMMS / non-ICORS contracts, the
BC 24 form can be emailed to [email protected] or faxed to 217-524-4922.
The information will be published in the Transportation Bulletin and then reviewed by
the PPB. See http://apps.dot.illinois.gov/changeorder/ for the PPB waiver status. A
copy of the waiver documentation should be retained in the Resident’s file.
Additionally, notification of a waiver may be sent by e-mail to select District personnel.
The Districts are responsible for supplying a list of e-mail recipients to the Central
Bureau of Construction and keeping the list current.
The process for approving Authorization of Contract Changes (BC 22) or Prior Approval
Authorizations (BC 2256) which are Major Changes or require central office approvals
remains the same. The IDOT approval for these BC 22’s (or BC 2256’s) can be
processed concurrently with the submittal for PPB review; however, the work for BC
22’s (or BC 2256’s) considered Change Orders cannot begin until the PPB has granted
a waiver. For this reason, timely submission of the BC 24 is critical to minimizing delay
to the contract. A copy of the submitted BC 24 should be attached to the BC 22 (or BC
2256). If a waiver is received from the PPB prior to the BC 22 (or BC 2256) being
submitted to the Central Bureau of Construction, the waiver should be attached to the
BC 22 (or BC 2256).
Construction Memorandum 4 September 10, 2020
Page 9 of 21

Contract Renewals

For contracts containing provisions for a renewal, the following procedures apply.
(Please note the terminology is “renewal” and not “extension”.)
Notify the contractor in writing of the Department’s desire to renew the contract and
have the Contractor concur in writing.
Obtain the Contractor’s signature on the BC100 (Bureau of Construction Contract
Renewal Form) prior to the original contract ending date and in accordance with the
contract renewal special provision.
Submit the BC 24 for the PPB review. Procurement law requires the PPB waiver be
requested within 10 days of the Department electing to exercise its option to renew the
contract. In the Reason for Extra Work section of the BC 24 note this is a contract
renewal. For example, “This is renewal 1 of 1 as provided for in the contract.”
Submit the BC 100, BC 22, and PPB waiver to the Central Bureau of Construction. The
Central Bureau of Construction will obtain the required central office approvals, submit
the package to the Comptroller, and inform the District when required approvals have
been granted.
Submittal of BC 22 - Authorization of Contract Changes

All contract pay item quantity changes must be submitted to the Central Bureau of
Construction on form BC 22, Authorization of Contract Changes. The submittal should
include Regional Engineer’s (or their designee’s) approval.
The guidelines for including line item changes on an authorization (BC 22) are as
follows:
• To the extent practical, submit a separate BC 22 for each extra work effort. This is
primarily important for major changes or when the value of the extra work effort
exceeds $100,000, or has some possibility of exceeding $100,000 on future
authorizations.
If subsequent authorizations (BC 22’s) are needed to adjust the quantities involved
in the extra work effort, those authorizations should use the same Authorization
Number as the original and assign a sequential Authorization Letter to the
subsequent authorizations. For example, if the items related to the original
authorization are submitted on Authorization Number 22, then later authorizations
for the same change order should be numbered and lettered as 22A, 22B, etc. The
explanation on these subsequent authorizations will include the cumulative total of
this work effort. (Note that subsequent line items used to balance previously
submitted force account or agreed unit price extra work pay items should be
designated with the same category code as the original submittal of the line items.)
• Small Purchases to be paid under an existing contract are to be submitted on a
separate BC 22, since the determination statement will be different from ordinary,
germane contract changes.
• Contract changes which represent balancing of quantities can be submitted
together on a single authorization. The description of the changes can be, simply,
"Balancing final quantities."
Construction Memorandum 4 September 10, 2020
Page 10 of 21

• New pay items for force accounts or agreed unit prices representing individual work
efforts (not part of another work effort) can be submitted together, or included on a
balancing authorization. If it is known that the total value of the work represented
by each item is less than $100,000, and the net value of the BC 22 is less than
$100,000.
Both the Procurement Code and the Finance Code forbid line item changes to be
artificially divided among separate authorizations so as to avoid any of the
requirements of the laws.
Documentation

Written Direction vs. Written Approval:

As stated in Article 109.04, Payment for Extra Work, all extra work must be directed in
writing to the contractor. However, the written directive to the contractor to proceed
with the extra work may or may not be the same document as the written approval of
the extra work. For example, approval of the work may be documented on form BC 22,
but the directive to the contractor may be accomplished by an e-mail from the Resident.
The BC 22 may be used as both the written approval of the work and the written
directive to proceed only when it has been fully approved before the work is to be
started. Do not forward a copy of the BC 22 to the contractor unless it includes the
approval of a person with sufficient authority to approve the change.
For minor changes, the BC 22 may be considered the written approval when it is
approved by, or for, the Regional Engineer, as long as this approval occurs before the
contractor is directed to perform the work. In this case, the district may use some other
form to direct the contractor to proceed with the work.
To avoid ambiguities that could result in contract disputes, the written directive to the
contractor must provide a clear description of the work to be performed, including any
reference to any applicable specifications by which the work is expected to be
performed. The method of payment should also be determined at that time.
Description and Reason for the Change:
There must be an explanation for each item, or group of items, which someone not
familiar with the project can understand. Brief explanations such as "balancing" and
"change of fund key" are acceptable. If extra work is directed by a member of the
district staff, the individual’s name and title should be included with the explanation.
For example, "Supervising Field Engineer Bill Smith directed that the culvert under the
field entrance left of Station 09 + 010 be lowered to prevent the ponding of water in the
ditch."
On subsequent BC 22’s for an extra work effort (e.g. #11A, 11B, etc.), the description
and reason will be repeated on each authorization.
Keep in mind that for authorizations to be published in the Transportation Procurement
Bulletin, the description and reason will be published but not the actual line items.
Make sure the written description is understandable when read separate from the
actual BC 22.
Construction Memorandum 4 September 10, 2020
Page 11 of 21

Determination Statement:
A determination statement must be included on all documents approving extra work
efforts. The determination statement must also be included on the BC 22 (whether or
not a separate document was used to document approval of the work).
For germane (ordinary) contract changes, the determination must state that the change
is germane, and explain why the change is germane.
The portion of the determination statement that is required by the Criminal Code for
germane changes is: "The undersigned determine that the change is germane to the
original contract as signed."
The Procurement Code goes a step further and requires that under certain conditions a
determination be made as to why the change is germane. The following typical
germaneness determinations can be used, when appropriate. However, actual
circumstances may require greater detail.
1. The undersigned determine that the change is germane to the original contract as
signed, because provision for this work is included in the original contract.
2. The undersigned determine that the change is germane to the original contract as
signed, because work of this type was included in the original contract, and the
additional efforts of this work are within the intent of the contract and Department
policy.
3. The undersigned determine that the change is germane to the original contract as
signed, because the change represents an adjustment required by the contract,
based on unpredictable developments in the work.
4. The undersigned determine that the change is germane to the original contract as
signed, because the change in design is necessary to fulfill the original intent of the
contract.
5. The undersigned determine that the change is germane to the original contract as
signed. See attached sheet for additional explanation of germaneness.
For Small Purchases paid under an existing contract, the following determination
statement is to be used:
6. Small Purchase procured in accordance with Section 6.100(b) of the Department
Procurement Rules. The undersigned determine that this change is in the best
interest of the State and is authorized by law.
The germaneness determination specified for a contract change should be consistent
between the BC 24 (when required), the BC 2256 (when used), the initial BC 22, and
subsequent BC 22’s (when applicable).
It is not permissible to simply place a germaneness code (e.g. G1, G2, etc.) on the BC
22. A determination statement must be used.
Miscellaneous BC 22 Documentation:
The following miscellaneous information must be noted on the BC 22 submitted to the
central office:
• Type of Authorization: Contract Adjustment, Change Order.
Construction Memorandum 4 September 10, 2020
Page 12 of 21

• Major vs. Minor: Indicate whether the contract changes included on the BC 22
represent a major or a minor change.
• FHWA Oversight: On Federal-aid projects, indicate if the project is classified as a
PoDI / PoCI.
• Project Location: This is intended to be a brief description of the entire project, for
the benefit of the reader unfamiliar with the project. Specific location descriptions
related to the included contract changes will be included with the Reason and
Description, as appropriate.
• Resident/Supervisor: The name of the Resident and the IDOT Supervising Field
Engineer should be noted. Typically, both individuals should approve the
authorization.
• Designer: It should be noted whether the plans related to the changes included
were prepared by the Department ("In House") or by a consultant. If prepared by a
consultant, then the name of the consultant will also be noted.
Supporting Documentation:
When additional documentation is required to support a contract change, it should be
submitted with the BC 22. The documents should reference the specific contract
change by including the contract number and the authorization number on each
document.
Errors and Omissions:
If the contract plans were prepared by a consultant and the contract change is
categorized as an error or omission, a copy of the Errors and Omissions memo from
the District Bureau of Project Implementation to the District Bureau of Program
Development must be included with the authorization. Refer to Chapter 8, Section 8-
4.01, Damage Due to Consultant Errors and/or Omissions, of the Design and
Environment Manual for proper documentation procedures of contract changes caused
by an error or omission.
Agreed Unit Prices:
Agreed unit prices require the District Estimator’s review and written approval. An
authorization that contains agreed unit prices will have the District Estimator’s written
approval or comments attached.
The contractor’s written request for an Agreed Unit Price (AUP) must contain a written
description of the work, quantity, and price. In order to expedite the review of an AUP
request by the District Estimator, if higher than historical bid prices for a given type of
work effort are requested by the contractor, justification for the higher costs (e.g., lower
production rates due to confined areas, small quantities which may have higher unit
prices, limited availability of material, etc.) should be clearly documented and provided
in the contractor’s request. Other justification that would assist the District Estimator in
evaluating requests could also include documented material costs such as actual price
quotes from a material supplier, a contractor’s unit cost worksheet, associated
mobilization costs, an “estimated” force account bill, documented production rates for
the type of work specified, or any other non-typical situation which would substantiate
the higher costs.
The District Estimator must document whether the approval was based on an estimates
worksheet, historical bid prices, concurrent similar projects or some other basis in
Construction Memorandum 4 September 10, 2020
Page 13 of 21

accordance with the Bureau of Design and Environment guidelines. A copy of the
documentation should be submitted with the authorization.
FAS ID's and CCS Codes (a.k.a. Fund Keys):
State and federal accounting procedures require that all contract changes be posted to
the correct FAS ID (Fund-Area-System) and CCS Code (County-Construction Type-
Safety Type). (The FAS ID / CCS Code combination is known as a Fund Key in
CMMS). The FAS ID and CCS Code of each line item must be identified. All changes
for the same combination of FAS ID and CCS Code must be grouped together on the
BC 22. If CMMS is used to create the BC 22, this grouping is performed automatically.
Eligibility of Roadway Maintenance Work for Federal Funding:
The broad category of work called Roadway Maintenance has, in the past, included
various sub-categories of work, some eligible for federal funding and some not eligible
for federal funding. The following presents a breakdown of what types of roadway
maintenance work are eligible for federal funding and what types are not eligible for
federal funding:
A. Types of Roadway Maintenance Work that are Eligible for Federal Funding:
• Patching, overlays, and repairs of roadway to accommodate staged traffic
configuration;
• Placement, repairs and maintenance of permanent guardrail damaged within
construction zones when the temporary lane configurations expose the guardrail
to increased risk of damage (e.g., traffic staged closer to guardrail or other
safety appurtenance than will be in final configuration) and no accident report
exists allowing the Department to recover costs through the Motorist Caused
Highway Damage (MCHD) program (presuming every effort has been made to
pursue reimbursement for any damage to guardrail from parties responsible for
the damage).
B. Types of Roadway Maintenance Work that are normally not Eligible for Federal
Funding:
• Permanent Safety Appurtenances (Guardrail, drums, attenuators, signs, etc.)
damaged when traffic configuration and appurtenance are in their permanent
configuration whether before, during or after project construction activities;
• Culvert cleaning;
• Snow plowing;
• Mowing;
Work that is eligible for federal funding and work that is not eligible for federal funding
are to be broken out into separate authorizations. Work efforts not eligible for federal
funding/participation under the descriptions above are to be separated into 07A fund
keys. The description of work included on an authorization for work associated with
roadway maintenance should be detailed sufficiently to clearly specify which type of
roadway maintenance work is being performed in order to assure eligibility for federal
funding.
Construction Memorandum 4 September 10, 2020
Page 14 of 21

Force Account:
When balancing force account work a recap should be provided as shown below:

Authorization #11 Estimate $20,000.00

Authorization #11A Estimate 32,000.00
Total $52,000.00

Actual Billing $51,959.03

Total Deduction this Authorization #11B ($40.97)

Force account billings and daily reports are not to be submitted with the authorization
and will be retained in the district’s files.
New Pay Items and Special Item Numbers:
When new pay items are added to the contract, the districts will use the following
format for creating the pay item number:
• For force accounts, the first three characters of the number should be "FRC". The
second three digits will correspond to the authorization number on which the item
was first submitted. The last two digits will normally be "00", but if more than one
new pay item is submitted on the same authorization, then change the last two
digits (e.g. "0A", "0B", etc., or “01”, 02”, etc.) to distinguish the additional items.
• The unit of measure for force account items is DOLLAR ($), and the unit price is
$1.00. The value of the force account is given in the quantity of the force account
pay item.
• For agreed unit price items, the first two characters should be "X9" and the third
character will be the district number. The remaining characters should follow the
same scheme as described above for new force account items.
For example, the pay item number "FRC01000" identifies a force account that was first
submitted on authorization number 10. "X9100401" identifies a new agreed unit price
item from District 1 that was the second new agreed unit price pay item number
submitted on authorization number 4.
In addition, the Department is tracking historical data on certain pay items that may be
added to contracts. A list of these Special Pay Item Numbers is included at the end of
this memorandum (see Attachment 3). If any of these types of work are added to a
contract, the Resident will use the appropriate special pay item number from this list.
The list is organized by change category, to show which change category should be
indicated when the item is added to the contract. Note that some of the special pay
items are rarely used anymore, but are maintained in the list for historical reasons.
All the special item numbers begin with "XXX". If the same special item number is
needed more than once on a contract, the last two digits of the item number can be
changed for the additional occurrences, such as "0A", "0B", etc., or “01”, “02”.
Construction Memorandum 4 September 10, 2020
Page 15 of 21

Handwritten Copies:
On projects where IT resources are not available, Residents should hand write, in ink, a
legible BC 22, and submit it to the district office for typing. The BC 22 submitted to the
Central Bureau of Construction must be typed.

Tim Kell, P.E.

Engineer of Construction
Construction Memorandum 4 September 10, 2020
Attachment 1 Page 16 of 21

Authorization Chart
Authorization BC 24 Germane
Prior
Code New Category Type Approval Reason*
01 Balance Final Field Measurements Adjustment No 1
03 Allowable Contingencies Adjustment No 1
09 Design Change Change Order Yes 4
12 Utility Cause Change/Addition Adjustment No 3
16 Specification Performance Adjustment Adjustment No 1
19 Contract Acceleration Change Order Yes 2
22 Differing Site Condition Adjustment No 3
24 Contract Administration Adjustment No 1
26 Highway Plan Quant Omission or Error Adjustment No 1
28 Highway Design Engineering Error Change Order Yes 4
29 Bridge Plan Error or Omission Adjustment No 1 or 4
30 Construction Engineering Error Change Order Yes 5
33 Local Agency Project *** *** **
85 Miscellaneous Adjustment No **

Authorizations $100,000 or Less, Regardless of Type, Do Not Require a BC 24

All Authorizations > $100,000, Regardless of Type, require a BC 24

* Most common reason. Could vary based on individual circumstances.

** Could be any of the 5 reasons
*** Could be either
Construction Memorandum 4 September 10, 2020
Attachment 2 Page 17 of 21

Change Category Descriptions

Code Category
01 Balance Final Field Measurements

Changes needed to account for the difference between estimated plan quantities and final, as-
built quantities, when the work is built to the lines and grades shown on the plans. The Resident
should use reasonable judgment whether an adjustment is within the expected tolerance for the
accuracy of plan quantities.
This category also includes bookkeeping changes and maximum payment adjustments.
Note that this category does not include balancing changes for extra work items or quantities
since the total cost of the extra work effort should be designated under the same, appropriate
category code.
Changes in this category are always considered germane since they are a specified adjustment
of pay quantities to perform the specified work. Contract changes of this type do not require
additional written direction to the contractor prior to the start of the work.
03 Allowable Contingencies

These are “built-in” changes that are required by the specifications or state-wide changes in
department policy based on the type of work involved in the contract or conditions found at the
job site. Generally, changes in this category are work efforts called for in the contract but
specified to be paid for as extra work, or they are planned contingencies, that is, work efforts that
depend on the actual field conditions which could not be known at the time of design.
Examples include accident cleanup, anti-strip additive, repairing water main breaks, water main
or service breaks, temporary drainage facilities, mowing prior to final inspection, additional
cofferdams, cofferdam inspection, cofferdam excavation, storage of structural steel, pile splices,
replacing damaged pipe, repairing state-owned traffic signal control equipment, additional
flaggers or traffic control devices, replacing temporary striping, repair traffic barrier terminals or
sand impact attenuators, railroad flaggers, pavement cleaning, temporary access, blading earth
shoulders (adjacent to resurfacing), preparing or repairing existing base, covering CRCP patches,
preservation of stone markers and survey monuments, installation and electricity charges for
traffic signal and lighting service installations, repairing slope failures, excess field office
telephone charges, samples for destructive testing, additional erosion control devices, traffic
control price adjustments, investigation and cleanup of hazardous or controlled waste, and
adjustments in contract unit prices as provided in the contract.
Changes in this category are most always germane to the contract, since provision for the work is
included in the specifications. Germaneness of this type of change would be questionable,
though, if the cost of the change was grossly disproportionate to the value of the original contract.
09 Design Change

This category includes all changes in the specifications or design that are not specified in another
category without regard as to why they were initiated or who initiated them. Care must be taken to
determine the germaneness of any design change.
12 Utility Caused Change/Addition

Compensation to the contractor for compensable delay damages caused by utilities, locating
utilities, as well as changes in the design made primarily to accommodate or avoid utilities within
the right-of-way.
Note that this category does not necessarily include miscellaneous bills paid in accordance with
Article 109.05. Such bills should be included under category 03, if more appropriate.
Construction Memorandum 4 September 10, 2020
Attachment 2 Page 18 of 21

Contract changes in this category are considered germane contract adjustments, insofar
as the changes are provided for in the contract.
16 Specification Performance Adjustment

This category includes adjustments or credits to the contract as result of deficient work or
materials accepted by the Department, assessment of liquidated damages, incentive/disincentive
adjustments, thickness and smoothness adjustments, traffic control deficiency deductions and
erosion control deficiency deductions.
Note that most of these types of adjustments have special pay item codes (XXX___) associated
with them.
These adjustments are specifically provided for in the contract and are, therefore, considered
germane contract adjustments. Since these adjustments must occur after the work is performed,
the requirement for prior written approval does not apply to this type of change.
19 Contract Acceleration

Adjustments made to the contract for the purpose of accelerating the contractor's progress in the
work. Examples include pay for Premium Time, High-Early Cement, and Wintertime Concrete
Protection.

22 Differing Site Condition

Compensation to the contractor for additional costs incurred when subsurface or latent physical
conditions are encountered in the project, in accordance with Art. 104.03.

24 Contract Administration

Any costs added to the contract as a direct result of a contract claim settlement.

Note that the Contract Acceleration category should be used for an item such as Premium Time, if
the acceleration item is not an explicit part of the formal claim.

All additions and deductions in pay items or quantities, including the actual value engineering
incentive payment, as a result of the acceptance of a value engineering proposal from the
contractor.

All other changes related to state costs for administering the contract. Examples include samples
for destructive testing (such as for bearing pads), contractor furnished equipment and Partnering,

Any costs in this category that are provided for in the contract are germane contract adjustments.

26 Highway Plan Quantity Omission or Error

Changes in plan quantity due to significant discrepancy between plan quantity and the as-built
quantity with no change in the intended scope of work shown on the plans, as well as changes for
a pay item that was not include in the plans, but for which the work was called for in the plans
with the intention of paying for such work as a separate pay item. This category does not include
errors in bridge plans.
Design errors in this category are not a change to the intended design but include costs that, had
the error not been made, would have been included in the awarded contract amount.
Changes due to account for plan quantity errors are generally considered germane contract
adjustments, unless the error is so large that the additional quantity changes the nature of the
work or could be considered under a separate contract.
Construction Memorandum 4 September 10, 2020
Attachment 2 Page 19 of 21

28 Highway Design Engineering Error

Changes in pay items or quantities resulting from an inappropriate design, given field conditions
that were known or should have been known at the time the plans were being prepared. This
category may include resolution of commitments made during the planning and design of the
project, if the resolution was not adequately addressed in the plans. This category does not
include errors in bridge plans.
Design errors in this category involve costs that should not have been paid had the original plans
been correctly designed.
Changes due to design errors require special consideration, as some design errors changes
could change the scope of the contract and would not, therefore, be considered germane.
29 Bridge Plan Error or Omission

Any changes resulting from an error in the bridge plans.

Note that a change is categorized as an error only if the issue involving the change was
something that the designer should have known about, was within the scope of the design, and
should have addressed in the plans. This category does not include errors or omissions in the
highway plans.
Changes due to design errors require special consideration, as some design errors changes
could change the scope of the contract and would not, therefore, be considered germane.
30 Construction Engineering Error

Additional compensation to the contractor due to errors in layout or construction within the
responsibility of the department. This category includes construction errors by both in-house staff
and consultant construction staff.
Work in this category is generally considered germane to the contract, since the extra cost is
needed to restore the work to what was intended by the contract. This work would be considered
a change order.
33 Local Agency Project

All changes on a local agency project can be grouped under this category. The other categories
are intended to identify changes on State projects.
In regards to the germaneness or classification (contract adjustment vs. operational/non-
operational change order) of the change, refer to the discussions noted under the appropriate
category.
85 Miscellaneous

Changes not included in any other category above. (It is intended that this category be used
rarely, if at all.)
Construction Memorandum 4 September 10, 2020
Attachment 3 Page 20 of 21

Special Pay Item Numbers

Category Pay Item Nbr Special Item Typical Units

16 XXX00100 Failure to Open Lanes to Traffic DOLLAR
03 XXX02100 Railroad Flaggers DOLLAR
03 XXX03100 Traffic Control Price Adjustments (per EACH, L SUM, DOLLAR
contract specifications)
03 XXX03200 Antistrip Additive DOLLAR
03 XXX04000 Mentor Protégé Reimbursement DOLLAR
03 XXX05000 CCDD Testing DOLLAR
03 XXX05100 CCDD Extra Costs DOLLAR
03 XXX15000 Pay Items Subject to RACIF DOLLAR
85 XXX06000 PLA Reporting DOLLAR
16 XXX16000 Traffic Control Deficiency CAL DAY
16 XXX16100 Credit Non-Compliant Work DOLLAR
16 XXX16200 Credit Non-Compliant Material DOLLAR
16 XXX16300 Erosion Control Deficiency CAL DAY
16 XXX16400 Credit Specification Non-Compliance DOLLAR
16 XXX16500 DBE Goal Not Met DOLLAR
16 XXX16700 Idling Deficiency CAL DAY
16 XXX16800 Ultra Low Sulfur Diesel Deficiency CAL DAY
16 XXX16900 Diesel Retrofit Deficiency CAL DAY
16 XXX17100 Liquidated Damages CAL DAY
16 XXX18100 Incentive Payment DOLLAR
16 XXX18200 Disincentive Deduction DOLLAR
16 XXX18300 Contract Compl Incentive CAL DAY
16 XXX18400 Contract Compl Disincentive CAL DAY
16 XXX18500 Lane Rental Incentive CAL DAY
16 XXX18600 Lane Rental Disincentive CAL DAY
19 XXX19100 Acceleration DOLLAR
16 XXX19500 Warranty Incentive DOLLAR
16 XXX19600 Warranty Disincentive DOLLAR
16 XXX19700 PFP Incentive SQ YD, SQ M, DOLLAR
16 XXX19800 PFP Disincentive SQ YD, SQ M, DOLLAR
16 XXX19900 PFP Resolutions Testing DOLLAR
16 XXX20000 PFP Credit Non-Compliant Material DOLLAR
16 XXX201** Thick Dis PCC __________ SQ YD, SQ M
16 XXX202** Thick Inc PCC __________ SQ YD, SQ M
16 XXX203** Thick Dis FD HMA __________ SQ YD, SQ M
16 XXX204** Thick Inc FD HMA __________ SQ YD, SQ M
16 XXX211** Smooth Inc PCC __________ SQ YD, SQ M, DOLLAR
16 XXX212** Smooth Dis PCC __________ SQ YD, SQ M, DOLLAR
16 XXX213** Smooth Inc FD HMA __________ SQ YD, SQ M, DOLLAR
16 XXX214** Smooth Dis FD HMA __________ SQ YD, SQ M, DOLLAR
16 XXX21500 Surface Variations HMA SC 1T EACH
16 XXX21600 Surface Variations HMA SC 2T EACH
24 XXX22000 Utility Delays DOLLAR
24 XXX22500 Railroad Delays DOLLAR
24 XXX23000 Claim Settlement DOLLAR
24 XXX24500 Contractor Furnished Vehicles DOLLAR
24 XXX25000 Value Engineering Incentive DOLLAR
16 XXX26100 QCP Disincentive DOLLAR
16 XXX26200 Longitudinal Joint Density Deduction DOLLAR
16 XXX26300 Dust AC Deduction DOLLAR
16 XXX26400 QCP Credit Non-Compliant Material DOLLAR
03 XXX27000 Speed Display Trailer DOLLAR
03 XXX27100 Truck Mounted Attenuator DOLLAR
85 XXX28000 Project Shutdown Costs DOLLAR
03 XXX35000 Traf Cont Standard Adj (changes to the DOLLAR
standard)
03 XXX99000 Fuel Price Adjustment Increase DOLLAR
03 XXX99100 Fuel Price Adjustment Decrease DOLLAR
03 XXX99300 Bituminous Price Adjustment Increase DOLLAR
03 XXX99400 Bituminous Price Adjustment Decrease DOLLAR
03 XXX99500 Addl RR Insurance Reqt DOLLAR
03 XXX99600 Steel Price Adjustment Increase DOLLAR
03 XXX99700 Steel Price Adjustment Decrease DOLLAR
 Construction Memorandum 4 September 10, 2020
Attachment 3 Page 21 of 21

** For Pavement Thickness Incentive/Disincentive and Pavement Smoothness Incentive/Disincentive Items: Include the actual pay
item description in the Special Item description. The description must be no longer than 22 characters and spaces; abbreviate
where necessary. If more than one pay item falls within the same Special Item number, the last two digits should be changed (i.e.
XXX20100, XXX20101, XXX20102). Do not delete the original pay item. The unit price for the Special Item will only reflect the
incentive or disincentive.