Here is my take on the definition between backfill and fill:
Backfill: Material used to refill an excavation. As in placing 'back' the fill. This applies to the fill placed back for a utility excavation, the material behind a retaining wall, etc.
I would think this would also apply unsuitable subgrade, where deleterious material (or material weakened by contractor operations) is encountered and needs to be removed and replaced with a suitable material.
Fill: Material (dirt) placed where previously there was no material. As in the mass grading of the site where lower elevations are raised to higher elevations.
Regarding the specifications:
Under section 2.3.3 Site Grading and Drainage, the last paragraph calls 'minimum soil compaction shall be 95%...." However this sentence follows an excerpt on holes and depressions being backfilled. (perhaps the contractors confusion, move on this below)
Section 4.13.6 Excavation and Compaction of Fill-- The 95% compaction is referenced, but again is follows placing of fill in areas that has unsatisfactory material.
This section goes on to specify the 15cm lifts, and that those lifs need to be tested for compaction. However, that compaction is not specifically identified there.
On the other hand, the 95% compaction requirement is identified in a few areas. I believe that in 4.13.6 where lift hieght and compaction testing is identified, it could REASONABLY be surmised that 95% compaction is required (in the absence of any other compaction requirement).
Section 2.3.4.2 Parking Areas also calls compaction at 95% for subgrade.
Sect 2.3.3 has an sentence that 'holes and depressions shall be backfilled.' That is a poor choice of words because existing holes and depression are filled via mass grading, not 'backfilled'.
Foundation notes again call for 95%. It also identifies 'backfilling' against underground or retaining walls, which infers a definition similar to mine above.
At any rate, I think your specifications are poor in that they are somewhat vague and subject to interpretation. There should be no question as to what the contractor is required to do.
That being said, I don't think the contractor has much to stand on. He can't just dump a bunch of fill, then compact only the top part, or seek an addition for compacting what should have already been compacted (per 4.13.6).
You might also add that it is a fairly common 'standard of practice' to compact your lifts. Why call out lifts to begin with if you're not going to compact them? If he wanted to do something outside the norm of practice he should have clarified early on.
Good luck, let us know how it turns out.