We do not imply that such a provision for deviation from the drawings is to be availed of by defendant beyond reasonable limits, or in such fashion as to place upon plaintiff, of necessity, a burden of performance which may not be regarded as having been fairly and reasonably within the contemplation of the parties when they entered into the contract.

This view has been taken because otherwise change provisions might be misused to "remould" contracts beyond the original intention of the contracting parties, to defeat competition in the letting of public contracts as required by statute and similar safeguarding statutes to promote official favoritism or for other reasons

A change order outside of that scope, or "cardinal change," is a breach of contract by the government.

Before the coercive effect of the threatened action can be inferred, there must be evidence of some probable consequences of it to person or property for which the remedy afforded by the courts is inadequate.