Hard to say. I am sure that is possible...even probable, but another possibility is that it is really hard to bid some thing that has never really been built before.
I often run into situations where I have to tell customers that I will not be able to get an accurate price until I can actually run at least preliminary engineering. I can not tell you how many times I have done this, submitted an accurate price only to be told I am $20k high on a $50k project.
When I don't budge on my price and they award the project to a competitor I often find out that they did not bother to run any preliminary engineering, underbid the job and either loose their shirt or spend months trying to collect the extra money, often unsuccessfully.