It really all comes down to civil vs. common law. In America, anyone can hold you over a barrel in court, indefinitely, for any or no reason, until you agree to their extortion.
About six months of work with lots of progress meetings with State of California bureaucrats to "keep them informed" .. and lo-and-behold.. as the required deadlines started getting closer, the State reps changed requirements, made amendments to deliverables.. the last three weeks, even MORE change orders "non-negotiable" .. I have never in my life seen major requirements changed on a multi-party project in the last weeks of a deadline like that. It was like the bureaucrats drank a lot of something, felt the "excitement" and HAD to change things to be "involved and hands on" .. it was STUPID and caused DAMAGE. There was no choice -- the State was paying.
That is how they do things in "infinite income" Sacramento ?