A working definition
A change order is a documented, mutually agreed modification to an existing contract or statement of work: added scope, altered specifications, revised dates, adjusted price. It exists because real projects change, and because changes made informally become disputes made formally.
Why the change process is where margin lives
A vendor who priced aggressively to win did not intend to lose money; they intended to recover it. The change order is how. Once a supplier is embedded, each change is negotiated without competitive pressure, priced against the cost of switching rather than the cost of the work. The buyer's approvers see one change at a time, usually sized just below the threshold that would trigger scrutiny. The question a decision-maker should ask is never whether this change order is justified. It is what the total contract value has become, and whether the original award decision would survive that number.