Is an order, regardless of value, always represented by one container?

Yes, one order is always for one container in the lower levels of the game. The value shown on the Order card is the amount the Bank will pay on delivery of one container on behalf of the Customer. Level four of the game, however, introduces pallet orders when a container can be exchanged for three pallets at any one of the four Distribution Centres around the board. The value to be paid for delivery of a pallet is likewise shown at the top of the Pallet Order card.