To clarify, military orders are only to be used for positioning troops, ships, or other military assets and writing strategic plans for your military forces during a conflict, such as a grand plan for an offensive. However, you can use these orders even if not at war for certain actions. For example, if you want to gain an advantage in a planned conflict you can order military forces to the borders of your intended target. Or you can reposition troops in your nation if you expect to have to quell a rebellion or uprising.