[quote=Pasta Sentient]
The minor nations are not meant to compete with them for a long while, but I do agree it needs to be clarified how exactly minor nations are going to be able to do anything with only two orders. They cannot completely focus internally cause of needing to use at least an order for whatever treaties they sign. As I asked...How much can one order do?
[/quote]

An order can do a shit tonne of things concerning one subject. You can write orders of multiple paragraphs, as long as it's all relevant to eachother.