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I don't like that because lowest bid can often be lowest quality, plus it's not like they only pay the lowest bid up to that bid and then move on to the next lowest bidder if the lowest bid goes over budget. The bidding system kinda sucks in all aspects.
Like if one company put in a bid for a bridge at $12 million but their design would need to be replaced in 20 years and another put in a bid for a $20 million bridge that would last a century, would the better bridge or cheaper one be built?
It isn't that simple. Standards are set and there are punishments governments can use if things aren't followed. Your stuff broke early? You are banned from bidding in this area for the next decade. Project is delayed? We are paying you 80% of what is agreed upon. You are constantly causing problems? We will write a spec that is so specific to your main competitor that you can't possibly meet it.
The system is not perfect but it isnt as bad as people might think.
The spec is allowed to require a certain level of quality. So the job could require a 100-year lifetime. You write it so that the bridge is as quality as you want and then take who can do that quality for the lowest amount.