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Once you've created a package and are confident that it's ready for review, you can submit it to the managing contact for final inspection before it is formally distributed for review. The managing contact will then examine the package and possibly make some edits before starting the review process.
If you feel that the package is not quite ready for review, you can forward it to another person for additional feedback. That person can then edit the package as required, then forward it back to you or the managing contact to begin the review process.
The main difference between these two procedures is that submitting a package changes its workflow state to Submitted, which means the package is one step away from starting the review process. Forwarding the package does not change the workflow state.
You can add documents with a Draft or Submitted state to any package with a Draft or Submitted state. When the package changes from Draft to Submitted, all the documents in that package also change to the Submitted state.
Question: I have more than on Submitted state. Which one will my documents change to?
A package usually contains documents when it reaches a Submitted state, but it's not necessary. For example, Subcontractor A creates a new package, but is unsure of the package contents. He submits the package to the General Contractor, who adds the documents. The managing contact then sends the package off for review.