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These bids are always a crap shoot. I would bid to the specs. You probably won't win but that is OK. Watch how the contractor that does win performs the job. Keep an eye on the planting during the maintenance period and see what is acceptable to the municipality. With this knowledge then you will be able to bid competitivly next time.
Most of these bids are won by the lowest bidder and if you check the history you will find it is almost always the same few contractors that win. They are not cheap but they know how to ignore certain specs that arn't enforced. As a new bidder if you win, the municipality usually will hold you to the smallest detail of the contract to "put you in your place" and it will take a few contracts to be trusted.
Another thing is that if the municipality is a little cash strapped these specifications allow them to find 100 ways to hold up paying you. Usually there is a large holdback during the maintenance period and then you have to fix any "defieciencies" before you get your money. That usually takes another 3 months. Add all this to the expense of carrying a bond and it can be a real money loser.
A lot depends on the person administrating the contract and that can change mid contract because of politics. Tread carefully
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