This is pretty easy. Freelancer decides who should land where based on mbases.ini, specifically the BaseFaction entries for each particular base. Just find the bases that you want the Order to land on and add the following among the other BaseFaction entries (plus brackets around "BaseFaction", of course):

BaseFaction
faction = fc_or_grp
weight = 1

This will cause Order NPCs that spawn around the bases in question to potentially land there.

ok i made the unknown planets and ryuku base allied with the order and i put enoucnters in the systems they fly around but nobody lands on the bases . the faction weight for those is 100 for the order.

Try editing the encounter file to use "behavior = trade" instead of "behavior = wander" (what most encounters use). To my knowledge, wandering NPCs never go anywhere, just fly around aimlessly.

i am thinking i have make up a zone for the areas because in liberty 01 theres zones set up for the bases and where i have the order/ nomads thres no zones for the planets. gammu and primus are all order bases and ryuku base in thouku i allied with the order. in the zones that are there i have the order as deffenders area defend so i problably have to set up a zone.