On UEFI page we can read:
Acknowledging that you understand a license is required to implement to the Specification does not now or in future commit you either to completing an Adopter's Agreement or to doing any implementation work. If you are planning to implement to the Specification, please complete and return the separate Adopter Membership Agreement to obtain the proper license.
Does this "to implement to the Specification" mean creating software based on the Specification, creating software using functionality exported by implementation of the Specification or contributing to the Specification in this case? And, is the closest synonym of "to implement to"?