In order for surface scattering models to be accurate they must necessarily satisfy energy conservation and reciprocity principles. Roughness scattering models based on Kirchoffs approximation or perturbation theory do not satisfy these criteria in all frequency ranges. Here we present a surface scattering model based on analysis of scattering from a layer of particles on top of a substrate in the dipole approximation which satisfies both energy conservation and reciprocity and is thus accurate in all frequency ranges. The model takes into account the absorption in the substrate induced by the particles but does not take into account the near-field interactions between the particles.