sqlFile not being called

I originally asked this question on stackoverflow but its been nearly a month and I haven't had any feedback and I still can't make this work.   I have a sql file that I would like run to seed my database table with state information.  I tried using a CSV file, but that didn't work either.  I don't see any errors in the logs so I don't know if its a matter of the file not being found, or it just silently failing.  My tables are created, so I know Liquibase is working correctly otherwise.

My current changelog-master.xml:

<?xml version="1.0" encoding="UTF-8" standalone="no"?>
<databaseChangeLog xmlns="http://www.liquibase.org/xml/ns/dbchangelog "
                   xmlns:xsi="http://www.w3.org/2001/XMLSchema-instance "
                   xsi:schemaLocation="http://www.liquibase.org/xml/ns/dbchangelog http://www.liquibase.org/xml/ns/dbchangelog/dbchangelog-3.3.xsd http://www.liquibase.org/xml/ns/dbchangelog-ext http://www.liquibase.org/xml/ns/dbchangelog/dbchangelog-ext.xsd"
                   objectQuotingStrategy="QUOTE_ONLY_RESERVED_WORDS">


<changeSet id="1" author="dclark">
<createTable tableName="STATE">
    <column name="code" type="VARCHAR(10)">
        <constraints primaryKey="true"/>
    </column>
    <column name="name" type="VARCHAR(100)"/>

</createTable>
...
</changeSet>


<changeSet id="2" author="dclark">
    <sqlFile path="classpath:states.sql" relativeToChangelogFile="true"/>
</changeSet>

</databaseChangeLog>


I am pretty sure its a classpath issue, but this occurs when running from within IntelliJ or on the commandline with gradle