Who submits the proposal for bids, bid agreement, and specifications?

In a state job?
This is in the engineering field, say like in a reconstruction of a road.

Answer:
Engineers write the technical portions of the proposals and specifications, but it is the lawyers and contract officers who actually submit the proposals, after they have added all of their "overhead" to the documents.

.
Specified engineers.
Usually the engineer prepares the documents and the owner submits them. Sometimes the state uses an engineering consultant and sometimes the engineer is a state employee.
Usually an engineering firm under direction from the city or state entity wanting the work done.

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