I have been in IT for over four decades- both as an employee and a contractor. I specialize in Unix ( go big blue)
It's called scope creep and as soon as you bring contractors it's in thier best interest to stay as long as they can. It's called scope creep and it is caused by many things but one that comes to mind is the customer not knowing what they want in the first place. The second is knowing what needs to be done but not being willing to do it right the first time. Just like building a house and making modifications as it's built.
Scope Creep in the sense that Project Managers use the word is a bit different...
PM's manage 3 primary things.. Scope, Schedule, and Budget...
Scope creep is what occurs when services or products (or whatever) are being produced outside of the projects (the contracts) stated deliverables and youre not getting compensated for it..
So basically youre providing the customer (in this case the government) something for free..
Theyve either asked you to do a little something "extra" thats not included in the contract, that they arent offering to modify the contract to cover.. or by virtue of employees not following a project plan, they end up delivering something thats not included.. or as often as not, someone in the value chain is providing something that would be seen as a "value add" to the contract... a little something "extra" that doesnt really cost the provider anything more (in terms of time or money.. i.e. schedule or budget)m but keeps the customer happy..
A little bit of scope creep isnt always a bad thing.. sometimes giving the customer a little something extra if it doesnt really cost you anything or prevent you from meeting your core deliverables is actually a good thing.. it certainly serves to make the customer happy, improve relationships, and can make everyones life a little easier.. etc..
The problem is when scope creep either starts costing you time and money that otherwise would have been spent on something else or cuts into your margins... or.. the scope creep starts hindering your ability to deliver what youve promised on time and on budget..
When the customer (again, in this case the govt) wants something very different than what it originally asked for.. whether thats a faster delivery... or a larger team.. or a different location.. or an improved capability.. or a completely new service/product that hasnt been discussed before.. thats when contract modifications and change orders come in... to keep large ticket, time consuming, and costly items or things that would otherwise inhibit the delivery of the original contracts requirements..
In those instances, an aggressive vendor/contractor has the opportunity to take advantage of its client/customer.. you essentially have them over the barrel.. their poor planning or poor understanding up front of what they actually wanted/needed.. or in some cases just a major change in conditions that were not considered or planned for.. has put them in a position where their options for problem resolution are extremely limited.. they either have to come up with an entirely new solution which is going to take a lot of time and potentially cost a lot of money... or they have to accept whatever terms and conditions the contractor gives them..
My point earlier (which after re-reading I realize wasnt really well made).. is in the IT/IS world and in the construction world as it relates to government contracting, if you look at the base contract that is initially awarded, it is very common that companies won that work by bidding very, very low margins.. some companies even make a practice of doing what we call "Buying work".. they bid the work at break even or even at a small loss.. because they think it has strategic value.. or.. they believe the government is going to change things so many times over the course of execution of the contract, that they will be able to make up all of those lost margins in the change orders..
Its a risky tactic.. because.. what if you win a $20M contract that is going to get executed over 5 years at a 1% net loss... and then no change orders ever come?
but.. to be truthful.. when dealing with the government.. the risk is pretty low in certain industries (IT and Construction in particular)... because the government has a very well established track record of issuing change order after change order after change order..
So the contractor might only make 1% on the base contract.. but plans on embedding 15% on every change order.. and knows its only a matter of time before the change orders start flowing..
When its all said and done, generally speaking the government contractor is still making margins below their counterparts that work in the public sector.. the big fees associated with the change orders just balance out the negligible fees associated with the base contract deliverables..
The motivation for doing business with the government is rarely monster profit margins in terms of percentages..
The motivation for doing business with the government is the size/volume of government contracts is typically much larger than the size of similar contracts in the private sector... the length of the government contracts is typically longer.. and.. while they are often a huge pain in the ass to deal with.. the government always pays... you have relatively no risk in terms of customers that dont pay you, money that has to be written off, etc..etc..
So while the % of profit might be lower.. the actual dollars in profits are as good or often times better (because the size of your orders are bigger)... and youre definitely getting paid once the work is complete..