The difference is the license you accept before downloading the spec. I am surprised that you did not notice this by carefully studying each document! For the JSR that I checked, the documents are identical, including the implementation license enclosed in the document.
The evaluation link offers a "Limited Evaluation License" to evaluate the specification. I think this is for JCP members, public commentators and application developers who want to understand the spec.
The implementation link provides a license to the performers. They get a license without royalties to distribute implementations under certain conditions. Paraphrasing freely, these requirements include: that the implementation fully implements the specification, that the implementation does not change the java package namespace that goes beyond the specification, and that the implementation passes the applicable TCK.
erickson
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