It is important to understand that the default Employee Role has an Employee Data Partition in place:
Drilling down into the Data Partition, we see a restriction that is built in for Employees and Change Request creation:
Data partitions are add-on constraints. They are conditions that will allow the given action (Create, View, Update etc.) to take place on the given table (Change_Request in this case) if the condition clause is met (id = 1). In this case, the DP specifies that the contact with this DP assignment will be allowed to Create a Change_Request if the given Change_Request has an id value of "1", which is not possible a condition to satisfy, and thus effectively blocks any such requests.
A question I have is what exactly are you trying to do? Why do you need Employees to be able to create Change Orders?