Yes, 'qualified bidders'. And what are the qualifications to bid to do the cabinets on a 6 million dollar public works/commercial building, which means the building might have $300,000+ of cabinets at most? Basically zero qualifications besides having a license. And with public works, yes the GCs will basically go with the lowest bidder. And while change orders do happen, it's the GCs job to get them to stick to their bid or otherwise they're just burning their own money.

I'm not just lying. Decades of experience in this. Yes construction basically lowest bidder outside of some private construction where relationships count for a bit, but even then the subs with relationships will get squeezed to match the lowest bidder.