In reality, I doubt any gca could get into a job as described, where all the permits were in place. Most are dependent on both a decent grading plan and lots of other design details. Also, after preliminary submittals, done to whatever we think the agency we are working with will allow us to do, they send out the plans to every other concerned agency and of course, the public for 45-120 day comment period. In my experience, that is where the left field objections come from.
The govt regulators on a local level have their rules to follow and are really just trying to do that. Sometimes a project gets caught up in a state or national directive, such as my course at Giant's Ridge where the state was "considering" expanding the endangered species list. So, we were delayed a year or so because someone MIGHT want to add the Marsh Marigold at SOME POINT in the future, a clear case of where that particular govt agency didn't really care how their agenda might affect us.
I was just told on a current project that another agency is famous for having gotten their review period extended to 120 days from the normal 45-90 and also for asking for a 120 day extension on the last possible day. So, they are trying to pass a law that says that if no comments are recieved, it is considered approved.
A funny story from Giant's Ridge, but the state was touring while trying to stop the golf course because of pesticide use, and just at that moment, a state DNR plane came by and crop dusted an island for Crown Vetch, putting much 2-4 D or whatever right in the lake that we were told we were harming. When asked what the difference was, they said, "We're the govt." and the supervisor there chastised the young ones who said that, and the permit was forthcoming soon. While rare in reality, that kind of arrogance is the stuff these stories are made of.
And of course, the public, no one knows what someone will object to, but you can guess that the NIMBY's will find something you need to address with time, exhibits, science, etc..
That said, in my recent meeting, I agreed to stay out of their sensitive areas by a beautiful stream for environmental sympathy, plus the practical considerations of how hard it would be to build a reliably functioning golf hole in that flood zone, those soils, etc. etc. etc.
In reality, at least the intent of most environmental rules is pretty sound, if not the implemetation. At the same time, its often a matter of perspective. We would say we are preserving nearly 100% of trout habitat with our design, while an environmentalist would say "You are preserving ONLY 99% of the trout habitat with your design......"