The bidding structure, as specified is:
1. You can only bid lower than the previous lowest bid. 2. At the end of the auction, the lowest bid will have 10 days to complete the project. If they fail, the next lowest bid will.
This appears to be a simple attempt to game the system. A low bid of $1 prevents any other bids from being registered, which guarantees that whatever the previously lowest bid was will not have to compete on price with other good-faith bidders.